Source: INTACH Delhi Chapter

About the Volume

DRONAH presents this volume on World Heritage jointly with UNESCO New
Delhi as a special 10th anniversary issue of ‘Context: Built, Living and Natural’. This
issue covers a diverse range of opportunities and challenges for the World Heritage
in India. At the same time, it brings forth India’s potential role in participating and
contributing to the emerging trends in World Heritage.

There are varied perceptions about World Heritage Properties in India. While
stakeholders and community at large recognise ‘World Heritage’ designation as
the most coveted recognition of their cultural or natural heritage at a global level,
they rarely comprehend the extent of commitment or management associated with
                
Heritage, Operational Guidelines and other conventions in India in the last few years.
The corpus of conservation professionals, heritage activists and non-governmental
organisations in India, awareness programmes by the Archaeological Survey of India
    !"#$% " &       ' ' 
Ministry of Culture are major factors contributing to a better understanding of World
Heritage today. India is at an important juncture where professionals, stakeholders
and communities are actively participating in dialogue and debate related to
prescribed processes for World Heritage and inquiring into subsequent applications
of these versus the ground realities in the country.

Clearly, there is a need for India to evolve its own standards and customised
models for identifying and sustaining World Heritage properties. While we do have
exemplary and well known socio-economic sustainability models for World Heritage
sites such as the Humayun’s Tomb with Nizamuddin Basti renewal by Aga Khan
  $           (   )) '
management at Sunderbans Natural Heritage Site, there are several more examples of
initiatives taken and challenges faced at ground level for World Heritage sites as well
as properties on the Tentative List. In this issue, we have made an attempt to include
a wide range of articles that cover preparation of the Tentative List, Nominations,
Conservation, Management of World Heritage Sites and Capacity Building to give
a perspective of World Heritage in India to our readers. Considering the vast pool
of heritage resources and the rich repository of Indian culture, this is only a small
glimpse of the larger picture that contributes to India’s World Heritage.

-The Editorial Team

Disclaimer: All articles included in this issue express personal view of the author and not of any organisation. All photographs are contributed by
      
 Chief Editor
Shikha Jain
Contents
Editors
Parul G Munjal
About the Volume ......................................................................................... 01
Cheena Kanwal

Managing Editor Foreword - Ravindra Singh ........................................................................... 05

Prabha Prabhakar Bhardwaj
UNESCO in India - Shigeru Aoyagi ............................................................. 07
Assistant Editors
Vanicka Arora
Shweta Keshri Aspirations to be on World Heritage: Tentative List
Consulting Editors Revision of India’s Tentative List of World Heritage Sites
Ajay Khare,
Aruna Bagchee ................................................................................................. 09
Kewal Khanna,
Suchandra Bardhan
Bridging the Gap: Historic Cities of India
Editorial Advisors
Adam Hardy,
PRASADA, Recommendation on Historic Urban Landscapes: Relevance in India
Welsh School of Architecture, Jyoti Hosagrahar .............................................................................................. 19
Cardiff, UK
Delhi’s Imperial Capital Cities: World Heritage nomination
A G K Menon
Convener, INTACH Delhi Chapter and the management of change
New Delhi INTACH Delhi Chapter .................................................................................. 27
Madhuri Desai
Lessons learnt from the World Heritage City of Strasbourg
Assistant Professor
Penn State University, Minja Yang ...................................................................................................... 35
Pennsylvania, USA

Rima Hooja Cultural Landscapes and Cultural Routes

MSID India Program,
University of Minnesota, USA Cultural Landscapes in India
Anand Kanitkar ............................................................................................... 45
Shankar Ghose
Charkha,
Development Communication Network, The Pulsating Grand Trunk Road of Punjab: Connecting memories of
New Delhi civilisations
Gurmeet Rai and Ridhima Bajaj ...................................................................... 51
Monideep Chattopadhyay
Chief Executive
Centre for Habitat, Majuli Cultural Landscape: Management and World Heritage status
Environment and Disaster Management, GSV Suryanarayana Murthy .......................................................................... 61
Kolkata

Cover Design & Layout Challenges of Serial Nominations

SN Graphix
(011) 46142909, 9891299959
Vital, Vast and Valued: The Western Ghats of India
Copyright © 2013 Dronah, India Meena Venkataraman, Karthikeyan Vasudevan and Vinod B Mathur .......... 69
All rights reserved including the right to
reproduce and contents of this publication in The Hill Forts of Rajasthan as a Serial Nomination
whole or in part without prior written permission Shikha Jain and Rima Hooja ........................................................................... 77
of the publishers. Neither this book nor any
part may be reproduced or transmitted in any
form or by any means, electronic or mechanical,
     
Hampi, Source: Pranjal Rai
recording or by any information storage and
retreival system, without permission in writing
from the publisher.

Printed and published by DRONAH

A-258, South City - I, Gurgaon-122 001
Tel: 0124-4082081,2381067, Fax: 0124-4269081
Email: context8@gmail.com
Website: http://www.dronah.org

ISSN No : 0973-502X

Vol X Issue 2 Autumn/Winter 2013

Evolving models of Site Management in the Indian Subcontinent
Chhatrapati Shivaji Terminus, Mumbai: Managing a
World Heritage Site
Vikas Dilawari ................................................................................................. 89

World Heritage and Archaeological Excavations: Fatehpur Sikri

K K Muhammed............................................................................................... 95 Kathmandu, Nepal

Notions of Interpretation and Management: Cultural heritage

of Taxila, Pakistan
Usman Ali...................................................................................................... 103

Paradigms for Structural Conservation: Observations and

approaches for the Sun Temple, Konarak
Saptarshi Sanyal ............................................................................................ 109

The Great Living Chola Temples

Sathyabhama Badhreenath ............................................................................. 119
Taxila, Pakistan
Management of Living Urban World Heritage: Kathmandu Valley
Kai Weise ....................................................................................................... 125

Managing World Heritage Properties in Madhya Pradesh

Vishakha Kawathekar..................................................................................... 135

Jantar Mantar, Jaipur: Implementing the Management Plan

Salahudin Ahmed........................................................................................... 141

City Development Planning in Mandu: Evolving city conservation

and management strategy
Parul G Munjal and Palash Srivastava......................................................... 149 The Western Ghats

The Role of Communities in Shaping the Management of

World Heritage Sites
Rajendra Shende ............................................................................................ 157

Conventions and Capacity Building

Learning from UNESCO Conventions: Finding relevance

for heritage conservation
Moe Chiba ...................................................................................................... 165

Capacity Building for World Heritage Sites in India: Gagron Fort, Rajasthan
Challenges and opportunities
Rohit Jigyasu.................................................................................................. 169

            

Jian Zhou and Ping Kong .............................................................................. 172

Heritage Album .......................................................... 173

Events and Conferences ................................................................ 193

Strasbourg, France
Source: Parth Sethi
Foreword
Being a signatory to the Convention ‘Concerning the Protection of the World Cultural and Natural
Heritage’ since 1977 and a member of the World Heritage Committee of UNESCO for three terms during
this period, India has played an active role in contributing to this convention.

India is fully involved in the evolving dialogue in World Heritage Committee to bring forth the
          '            )  
and managing World Heritage sites.

India recognises that as a commitment to the ‘Global Strategy, aspects of balance and representativity
need to be applied at all levels, be it the composition of the World Heritage Committee or composition
of the Advisory Bodies’ panels and experts since this directly relates to the regional diversity of sites
presented in the World Heritage Sessions.

The complexity, singularity and diversity of World Heritage today necessitates that the Advisory Bodies
   *     )     +    '        
associated with it. India has a commitment to bring in professionalism in the entire process of World
Heritage including working towards a credible and balanced World Heritage List as well as to facilitate
training and capacity building across the Indian subcontinent. In order to support dialogue on World
Heritage Matters, the Ministry of Culture, India hosted the International World Heritage Expert Meeting
on Visual Integrity at Agra in March 2013. India has also successfully launched the Category 2 Centre
for Natural Heritage at the Wildlife Institute of India at Dehradun as per Executive Board approval in
November 2013, and is now aiming to initiate the Cultural Category 2 Centre soon by the Archaeological
Survey of India in New Delhi.

The 30 inscribed sites on the World Heritage List from India is merely a small representation of the
vast potential of India’s diverse cultural and natural heritage. One of the most complex and challenging
heritage categories in India is of historic cities and cultural landscapes. While there are almost 200
historic urban cores inscribed on the UNESCO World Heritage List, the external auditor’s report on
World Heritage clearly mentions the gap of historic Indian cities that can be placed on the List. The
')                )*  )  *) 
indigenous management frameworks, integrating culture with development since centuries. Recognition
of management frameworks for historic Indian cities will introduce new dimensions to the World
Heritage List.

            /        (        

outstanding cultural heritage categories in the country, at the same time India’s World Heritage sites will
aim to be international benchmarks in visitor facilities, interpretation, risk management, conservation and
sustainable tourism.

Hence, the Ministry of Culture has formed a National Committee to ensure that national level
benchmarks for site management and sustainable tourism are achieved before a site can be placed on the
Tentative List for World Heritage. The Ministry is also planning an initiative for holding a trans-national
nomination on ‘Spice Route’ that would bring together a very large number of countries.

Ravindra Singh
Secretary
Ministry of Culture
Source: B.S. Adhikari
UNESCO in India
A Peace based exclusively upon political and economic arrangements of governments would
not be a peace which could secure unanimous, lasting and sincere support of the peoples of the
world, and that the peace must be therefore founded upon the intellectual and moral solidarity of
mankind (Constitution of UNESCO 2012, p. 5).

Since the inception of UNESCO in 1945, the protection of world’s diverse cultural heritage has been
always envisioned as one of the effective means to foster lasting peace based on mutual understanding
and respect of each other’s culture. 1972 World Heritage Convention was born as an epitome of this
philosophy. Clearly, protection of heritage sites was intended for a much larger objective of humanity
than merely to maintain old original architectural fabrics for the interest of a small circle of academics.

68 years after the Constitution of UNESCO and 40 years after the adoption of 1972 World Heritage
Convention, the challenges surrounding the heritage are increasingly complex. In the face of rapid
urbanisation and legitimate demand for social and economic development, heritage conservation often
            ' $ ' *     )=  
   > '  )  ? @F '      J  ) &) Q 
adopted, the contribution of culture and heritage for development was not recognised.

$(      ))             ))  '
across the world and ironically, World Heritage nomination is sometimes more dreaded than welcomed.

Today, as UNESCO leads its campaign to mainstream culture in the post 2015 agenda, it is time for all of
   =   )    !"#$% $    (   '     
be protected and how it should serve the peoples’ larger goal and aspiration for well being.

UNESCO believes that cultural heritage should enrich the Millennium Development Goal 2: Achieve
Universal Primary Education, by improving the quality of education. Increased understanding of our own
local heritage as well as that of others should enhance the sense of world citizenship.

Process of World Heritage nomination should become by itself a means of intercultural dialogue and we
hope there should be more cases of trans-boundary nomination.

More importantly, heritage experts should actively look into the potentials of heritage in eradicating
poverty, as intended through Millennium Development Goal 1, by creating local industry and
employment within and surround the heritage sites. The issue will be particularly relevant in India where
historical cores of the cities often become a slum or heritage monuments are encroached by poorer
segment of the society.

India is endowed with a pool of quality and dedicated heritage professionals. UNESCO looks forward to
creative ideas from India to advocate for the role of cultural heritage in development process. The wide
array of authors contributing to this special issue is the testimony of India’s intellectual vitality.

Congratulations to ‘Context: Built, Living and Natural’ for its 10th Anniversary and for successfully
(             )' )

Shigeru Aoyagi
Director and UNESCO Representative
Bhutan, India, Sri Lanka and Maldives
Aspirations to be on World
Heritage: Tentative List
‘States Parties are encouraged to prepare their Tentative Lists with
the participation of a wide variety of stakeholders, including site
managers, local and regional governments, local communities,
NGOs and other interested parties and partners.’ (Para 65,
Operational Guidelines for the Implementation of the World
Heritage Convention, 2013)

This section presents the exhaustive consultative process

used for revising the Tentative List of India in 2012-13.

Source: Tapasya Samal

 Aspirations to be on World Heritage: Tentative List 9

Revision of India’s Tentative

List of World Heritage Sites
$581$%$*&+((

ABSTRACT

The revision of the World Heritage Tentative List for India was undertaken
by the Advisory Committee on World Heritage Matters under the Ministry
of Culture, in association with the Archaeological Survey of India (ASI),
from 2012 to 2013. The process and methodology adopted was designed
to take into account India’s federal structure and richness and diversity
of its heritage. The assessment methodology included the preparation
of a Reference Table to assess more than 200 properties on the basis
of a common set of criteria and a special purpose Matrix to facilitate
comparison and prioritisation among the proposals listed as a part of the
Reference Table.

            

Aruna Bagchee has a PhD in Sociology from Tentative List in terms of geographic balance and representation of
Pune and a Masters in Public Policy from different typologies and historical periods. While paving the way for
Harvard University. A civil servant by profession, future course of action, a thorough Tentative List does not in itself
she served in the Indian Administrative Service guarantee a successful nomination because of multiple factors relating
from 1973 to 2002 and as senior governance to dossier preparation, management of the sites and development of the
adviser in the UK government’s Department for surrounding areas.
International Development from 2002 to 2010.
10 Aspirations to be on World Heritage: Tentative List

INTRODUCTION x Study the recommendations of international bodies

to frame and guide the process,
A Tentative List is an inventory of those properties x Undertake in-depth analysis of World Heritage
situated within its territory that each country considers issues in India and the South Asia region,
suitable for inscription on the World Heritage List. x Engage with a broad range of stakeholders to
UNESCO’s Operational Guidelines stipulate that identify potential sites, and
nominations to the World Heritage List are not x Develop a rigorous methodology for selecting sites
considered unless the nominated property has already for inclusion in the revised Tentative List.
been included on the State Party’s Tentative List at least
one year prior to nomination. These elements of the strategy and the results achieved
are discussed below.
Moreover, the World Heritage Committee encourages
State Parties to re-examine and re-submit their GUIDELINES FRAMING THE TENTATIVE
Tentative Lists at least once every ten years. India’s LIST REVISION EXERCISE
Tentative List had been prepared initially in 1998.
Hence, a revision of India’s Tentative List was long As per recommendations of the Advisory Bodies of
overdue and consequently, was one of the initial tasks the World Heritage Committee, all State Parties whose
taken up by the Advisory Committee on World Heritage heritage is already well represented:
Matters under the Ministry of Culture, in association x Should be encouraged to carry out critical reviews
with the ASI. For reviewing and revising the list, a of their Tentative Lists, paying particular attention to
Tentative List Working Group (TLWG) was established the kinds of cultural properties already inscribed in
in February 2012, with the following objectives: the World Heritage List, both in their own territories
x Evaluate India’s World Heritage List and existing and elsewhere.
Tentative List with regard to regional, typological x Should be especially rigorous in their selection of
and chronological representativeness. certain well represented categories of property on
x Take on board the International Council on their Tentative List.
Monuments and Sites (ICOMOS) and International x Should be encouraged to revise and complement
Union for the Conservation of Nature (IUCN) their Tentative Lists, to take account of not only
studies of the global Gap Analysis of World Heritage the different typological categories, but also the
  !"#$%Y Q    '    chronological, regional and thematic frameworks, as
under-represented categories and their implications well as the relevant thematic studies carried out by
for India’s revision of its Tentative List. the Advisory Bodies.
x Undertake a gap analysis for India and South Asia on x Should improve the quality of their Tentative Lists
the lines of ICOMOS Gap Analysis 2004. and provide more relevant information, including
x Establish a credible and transparent process of comparisons with other similar properties and maps
stakeholder consultations and clear and consistent delimiting the boundaries of the properties and brief
criteria for selecting sites for inclusion in the revised details of management mechanisms, as required in
Tentative List. the ‘Operational Guidelines for the Implementation
x Prepare a list that is as broad based and of the World Heritage Convention’.
representative of the rich heritage of the country as x Carry out harmonisation of Tentative Lists of State
   )   Y       Parties belonging to the same cultural region to
  ZY  ZY       focus on similar proposals and existing gaps.

Keeping these objectives in mind and having studied The Special Expert Meeting on ‘The Concept of
the process of several countries such as Canada, Outstanding Universal Value’ held in Kazan in April
Ireland, Israel, New Zealand, UK and USA, the \]]F  )      )) 
TLWG devised a strategy for Tentative List revision concerning Tentative Lists:
appropriate to the Indian context. The process and x Properties on Tentative Lists should have national
methodology adopted in India was designed to take into and/or other appropriate recognition.
account the Country’s federal structure, the richness x The size of a Tentative List should take into account
and diversity of its heritage and the need to accomplish the Cairns-Suzhou Decision.1
the task within a time frame of one year. Key elements x Comparative analyses should be developed by
of this strategy were to: regions and themes.
 Aspirations to be on World Heritage: Tentative List 11

Distribution of World Heritage and existing Tentative List properties in India

12 Aspirations to be on World Heritage: Tentative List

x Regional meetings on harmonisation of Tentative Karnataka has none from the culturally rich Mysore
Lists should identify types of properties for area. There is no representation of the Marwar or desert
nomination in a given region, and those for possible region of Rajasthan, nor from South Gujarat despite its
inclusion as transnational and trans-boundary historical coastline.2
properties.
x The Advisory Bodies should complete their The most represented typologies in India’s World
thematic studies and facilitate appropriate regional Heritage List are: archaeological properties,
and comparative studies in a time scale to allow architectural properties, rock-art sites and religious
State Parties to identify themes of heritage that are properties, in keeping with the international trend. On
relevant for the revision of existing Tentative Lists. India’s Tentative List, the most represented typologies
are archaeological properties and historic towns. On the
BACKGROUND ANALYSIS other hand, globally the least represented typologies
are: cultural routes, fossil hominid sites and modern
While India has some presence, with 30 properties out heritage (ICOMOS 2004). These, along with vernacular
of a total of 981 World Heritage Sites inscribed across architecture, are also least represented typologies at
    \]@_     '  )  South Asia level. Modern heritage is well represented
the quantum and potential of outstanding sites existing in India’s existing Tentative List. The current Tentative
in the Indian subcontinent. List is fairly balanced and except for ‘Fossil Hominid
site’ includes properties from all typologies. Thus, India
There are a total of 33 properties on the existing has an excellent range from which to nominate sites in
Tentative List of India. Of these, 23 are cultural, nine the future.
natural and one cultural landscape. Cultural properties
form a majority of the list with 71% share, followed Looking at the representation of different historical
by natural with a 26% share and cultural landscape at periods in the current World Heritage lists, the Mughal
three percent. Out of these 33 properties, seven can be Empire, 1526 to 1857 CE is the most-represented
considered for serial properties. At present, there is no period in South Asia. In India’s World Heritage List
+   ' ?      and Tentative List, the period from the Stone Age
two properties with potential for trans-national to the Kushan Empire, 3000 BCE to 375 CE is least
nomination. represented, whereas the Mughal Empire is the most
represented age. There are currently eight properties
An analysis of zone wise distribution shows the North- on the World Heritage List and nine on India’s existing
east is least represented on the existing Tentative List. Tentative List that belong to the Mughal period.
There is no cultural property from the north-east zone
on the Tentative List. There is no natural property CONSULTATIVE PROCESS FOR
from the South and Central Zones. There is only one IDENTIFYING PROPERTIES
pan-India property, namely Silk Road Sites of India.
The uneven coverage across the regions can be clearly With due consideration to the Country’s federal
seen at a glance with the geographic mapping of World structure and size and the potentially large number
Heritage and Tentative List sites in India. There is a of likely proposals, it would have been impractical
potential to identify more archaeological heritage, tribal to centralise the whole process. It was important that
cultures, vernacular heritage and cultural landscape the Tentative List revision process be recognised as
sites from the under-represented regions of central and inclusive, robust and rational. Therefore a democratic
eastern India. process of stakeholder consultations through regional
workshops covering a few states at a time was adopted
A number of states, namely Andaman and Nicobar that enabled engaging with a broad range of custodians
Islands, Chhattisgarh, Dadra and Nagar Haveli, of India’s heritage resources. Accordingly, six regional
Daman and Diu, Jharkhand, Lakshadweep, Manipur, workshops were conducted between April and
Meghalaya, Mizoram, Nagaland and Tripura have not November 2012, co-organised by local ASI Circles and
been covered at all. Odisha and Andhra Pradesh that are the host State Governments.
rich in cultural and natural heritage have only one or
two sites each. Furthermore, there are gaps in coverage The State Governments were represented not only by
even within state boundaries: Uttar Pradesh has no their departments of Culture and Tourism, but also
  )            Urban Development and Forest and Environment.
 Aspirations to be on World Heritage: Tentative List 13

2012 Schedule of Zonal Workshops x     '  ) )  +'

Date Location Zone sites owing to a lack of dialogue between
         
April 10, 2012 Mumbai West

May 25, 2012 Chandigarh North    | =     '
with natural site experts, proposals were collected for
July 10, 2012 Kolkata East
the revised Tentative List. A total of 238 properties
August 10, 2012 Chennai South were proposed out of which 162 were cultural and 76
were natural, mixed or cultural landscapes.
August 30, 2012 Bhopal Central
ASSESSMENT METHODOLOGY
October 13, 2012 Guwahati North East

A workshop on natural sites was also held in The consultative process adopted by the TLWG had
Hyderabad with environmental experts and yielded a large number of recommendations. This
specialists from across the nation necessitated developing a rational methodology to sift
through the proposals in order to select sites eligible for
Other invited participants included local chapters of inclusion in the revised Tentative List.
Indian National Trust for Arts and Cultural Heritage
(INTACH), non-governmental organisations (NGOs), In the Indian context, besides the property’s OUV
professionals from schools of architecture and other and authenticity and integrity, other site management
technical experts. Participants had been provided issues such as encroachments or litigation become
formats in which to present data on the current equally relevant in determining whether the property
status of their Tentative List properties and propose can be nominated to World Heritage site status. Hence,
additional sites. The advantage in inviting only a few the TLWG decided to assess each property along
states at each workshop was that it enabled bringing both these dimensions. Accordingly, a Reference
together all categories of stakeholders: state and central Table was created, listing all the proposed properties,
government, scholars and professionals, NGOs and giving details of each property with regard to its key
activists. Moreover, the states had a chance to interact  )  }   %!~       ' 
with each other, thus sparking interest in cross-border authenticity, as well as status of ‘preparedness’ in terms
serial nominations or proposals for thematic studies of boundary demarcation, management and technical
to consider the historical and aesthetic links in the            
heritage assets across the Subcontinent and South Asia. 200 plus properties could be assessed on a common set
of criteria.
The workshops also provided an opportunity to discuss
some common issues on policy and site management. Next, a special purpose Matrix was developed to
The following observations were made: facilitate comparison and prioritisation among the
x There is a need to elaborate different criteria and proposals listed in the Reference Table. The Matrix
  '        enabled each property to be objectively assessed
to respect its inherent diversity. by giving it numerical values along each axis. For
x There is need for recognition of the South Asian example, along the X axis, a property was evaluated
perspective in World Heritage documents,        '   *   
such as indigenous systems for protection and ' )   )    _   * 
management. to ten years, meriting numerical value of 2 or required a
x At local level, there is a lack of comprehension of thematic study, meriting numerical value of 1. Similarly,
the concept of Outstanding Universal Value (OUV) along the Y axis, the TLWG assessed whether a
and lack of clarity in its articulation. property had strong OUV and well articulated criteria,
x There is an absence of appropriate legal meriting a numerical value of 3 or did have OUV
frameworks for protection and management of but this needed better articulation of precise criteria,
properties, especially in regard to properties or meriting numerical value of 2 or needed further study
sites beyond protected monuments. to determine whether it had OUV, meriting a numerical
x          ) )  value of 1. Based on discussions among working
of multiple jurisdictions of central, state, and local group members and invited experts, every existing
authorities, and different departments. Tentative List and newly proposed site was assigned
14 Aspirations to be on World Heritage: Tentative List

World Heritage List

by chronology in
South Asia

World Heritage List

and Tentative List by
chronology in India

an appropriate cell on the Matrix. Based on this shared this point, for inclusion in the Tentative List, although
understanding of how the individual proposals stacked they could be separately assessed for inclusion in a
              listing of national heritage.
Cells A, B and D, green block, all scoring either a 6
or 5 were recommended for inclusion in the revised THE MATRIX AS A PLANNING TOOL
Tentative List. Properties falling in Cell C, orange
block were recommended for thematic studies. These The above Matrix is a useful tool providing robust
were typically properties requiring more comparative reasoning for short listing properties to recommend for
analysis or consideration as a thematic group to clearly the revised Tentative List. But it should also be used as
articulate their OUV. Properties falling in Cells E, F, G, a long term planning tool. For instance, if some of the
H, and I, mauve block were assessed as not eligible, at thematic studies recommended in Cell C are completed
 Aspirations to be on World Heritage: Tentative List 15

Analysis of the existing,Tentative List and proposed Revised Tentative List by typology in India

in the next two to three years, they may yield more quality. The Matrix can be reviewed every two to three
candidate properties for Cells A or B. Similarly, years for possible updates, although the Tentative List
properties currently placed in Cell B could be moved revision in entirety will be due only 10 years hence.
up to Cell A, if a determined effort is made by the
concerned authorities, that include State Governments HARMONISATION: WORLD HERITAGE
and ASI, to resolve site related issues and allocate IN INDIA
       
The Global Strategy of the World Heritage Committee
    ) +  (*   '   '  aims to achieve a balanced, representative and
Matrix to shift properties from one cell to the other       ?        
provided further work is undertaken, either in resolving
Matrix for Assessing the Eligibility of Candidate Properties
             
for inclusion in the Revised Tentative List of India
of the OUV. The TLWG recommends that the Matrix
Key STRONG MODERATE WEAK
assessments should be shared with state governments, Determinants
to encourage them to initiate steps for better Preparedness (3) (2) (1)

management, protection and study of the properties. SHORT TERM

It is hoped that the incentive to move them up in the A D G
(3)
priority list will encourage improved protection and
management of heritage sites. At the same time, it MEDIUM
bears repetition that only those properties that come up B E H
(2)
to Cell A status should be considered for nomination.
From amongst Cell A properties, their inter se priority LONG
C F I
     )        (1)
based on the progress of each property’s dossier and its
16 Aspirations to be on World Heritage: Tentative List

the Tentative List, the TLWG did a light touch the revision process. The proposed revised Tentative
harmonisation with the following objectives: /             
x Broaden the understanding of World Heritage by of natural, mixed and cultural landscape properties.
including a wider spectrum of India’s heritage.            *  
x Balance and prioritise selections with reference to Tentative List in terms of geographical balance and
Gap Analysis for India and the under represented representation of diverse architectural typologies and
categories. historical periods. There are a few properties, such as
x Identify and include properties that are outstanding sites related to Buddha’s life and ancient universities
demonstrations of new categories of World Heritage that could potentially become trans-boundary or
such as cultural landscapes, itineraries, industrial trans-national nominations. This is true of two other
heritage, deserts and coastal-marine sites. exciting pan-India series of historical sites: iconic sari
x Recognise and assert that certain categories of World weaving clusters of India and sites of India’s non-
Heritage properties that may have been assumed violent Freedom Movement. The former could link
to be adequately represented are, in fact, so rich, with the Jamdani and Dhakka sari weaving clusters of
complex and diverse, and so outstanding in their Bangladesh. The latter can link up sites that speak to
universal values that they merit further consideration mankind’s history of peaceful civil resistance all over
for the World Heritage List. Temples in India are an the world, particularly South Africa, UK and USA.
example of this. Of course, issues of management need to be carefully
x Attempt an overall regional balance. While assessed before such nominations are taken up.
properties are selected for the Tentative List for their
outstanding values globally without any obligation to Emerging from discussions in this process, TLWG has
achieving regional equity, given the wealth of India’s       )  )     
heritage and its federal structure, an overall regional will help bring forward future nominations. A total
balance would be credible and representative. of 15 themes on the cultural side, and nine thematic
x Recognise the challenges India has faced in recent studies on natural and cultural landscape areas have
years in putting forward convincing nominations. been recommended. Included among cultural thematic
x Recognise feasibility and limitations of selected sites studies are:
to go from being on the Tentative List to becoming x World War sites and the Indian National Army (INA)
  )     (  sites.
feasibility and limitations may include institutions, x Megalith sites including Umbrella Stones, Thrissur,
  )  )    )   Kerala; Hirebenkal, Karnataka, Central India Sites,
administrative structures. Deccan, Chongliyimti-Megalithic sites, Nagaland,
the group of Megaliths, Nartiang Jaintia Hills,
Harmonisation with neighbouring states parties will be Meghalaya, Salangthel Megalithic Ridge, Manipur.
taken up in next phase. x Petroglyphs including Petroglyphs of Pansaimal,
Mausi and Kazur, Goa and Ladakh.
OUTCOME OF THE REVISION PROCESS x Indo-Saracenic Architecture Pan-India, including
Series of Indo-Saracenic buildings along Marina
This year long process of consultations, analysis and Beachfront, Tamil Nadu.
screening of over 200 heritage sites has yielded three x Timber Architecture in India including Shah
major outcomes: Hamdaan Mosque, Srinagar, Jammu and Kashmir
x A revised Tentative List of 57 properties, selected and Hidimba Devi Temple, Manali, Himachal
out of a total of 238 proposals, based on a process Pradesh.
that was inclusive, robust and rational. x       )) ƒ+   
x     )  *  )      Nizamuddin and Mehrauli, Delhi and Ajmer.
bring forward more proposals with clear OUV. x River Settlements including ‘The Eternal City of
x    =    ) Varanasi’, Ujjain, Allahabad, Nasik and ‘Little
methodologies and criteria to consider embarking on Europe on the Hoogly’, West Bengal.
a National Listing of Heritage Sites.
Sites included in thematic studies under natural, mixed
It needs to be mentioned that the selected list of 57 and cultural landscapes are:
    )     x Cold Desert Cultural Landscape including Ladakh,
in the background analysis done at the beginning of Hemis Gompa and Alchi Monastery, both existing
 Aspirations to be on World Heritage: Tentative List 17

cultural properties, Jammu and Kashmir. FUTURE STEPS: FROM TENTATIVE LIST
x Rock Art and Rock Architecture sites TO SUCCESSFUL NOMINATIONS
x Historic water structures
x Upper Ganga Region from Gangotri to Haridwar, as %     /        
a cultural landscape. process, one followed by many countries, might be to
x   (     }   )  prepare a nomination dossier for each of the properties
rhododendron areas, present in the Himalayas and on the Tentative List and nominate them in sequence
North East. to the that World Heritage Committee. However, the
x The Citrus Belt in Garo Hills, Meghalaya. TLWG recognises site management and readying the
x Fossil and Paleontology sites, including North-east, sites for nomination are a much bigger challenge than
Shivaliks and Rajasthan. dossier preparation.
x Sacred Groves and Sacred Landscapes of North-east
x Geological Formations and Processes of North-east, In some instances, the tasks associated with these
including cave formations. may take several years to put in place. Without steps
x Indian Tiger Landscapes. to manage heritage sites and the development of
x Natural Bridges; root bridges and root ladders, surrounding areas, a likely scenario of pressures of
Meghalaya. urbanisation and development, rampant tourism and
escalating real estate values will ensure the failure
„    )     )   of every nomination. A thorough Tentative List does
process could be the realisation of the need to develop not in itself guarantee a successful World Heritage
a National Heritage Register. The considerable amount nomination. India is now embarking on a systematic
of data collected on all these sites should be organised improvement of all the stages in the process from
and shared, as even those properties not immediately Tentative List to nominations.3
recommended for inclusion in the revised Tentative
/             
properly managed. Steps are now being taken towards
this direction.

Acknowledgements Filling the Gaps - an Action Plan for the Notes

x Vivek Menon, Wildlife Trust of India (WTI) Future, ICOMOS, Paris. 1
This lays down limits to how many
was the lead Environment Expert for the x Rössler, M 2012, ‘Outstanding Universal nominations per year may be allowed to
Zonal Workshops that were jointly organised Value and Criteria for the Inscription of State Parties.
2
by WTI and ASI. World Heritage Cultural Landscapes’, World Coastal routes are currently an under-
x ASI and Members of the Tentative list heritage Cultural Landscapes, City of Elche, represented category, globally.
3
working Group, ACWHM. Spain. The Ministry of Culture has now formed
x Thorsell, J 2012, ‘Scenic Natural Beauty a National Committee to enlist these
Bibliographic references How can it be Judged?’, World Heritage, 57 selected sites on a National List so
x Advisory Committee on World Heritage viewed 13 May 2013, <http://pfdmedia.com/ that these can be ready in terms of site
Matters 2013, World Heritage: Tentative List read-online/wh_63_eng_may_2012/>. management and other parameters before
for India, Revision of Tentative List 2012-13, x UNESCO n.d. Global Strategy, viewed they are upgraded to the Tentative List.
Ministry of Culture, New Delhi. 13 May 2013, <http://whc.unesco.org/en/
x ICOMOS 2004, The World Heritage List: globalstrategy/>.
18 Aspirations to be on World Heritage: Tentative List

Bridging the Gap: Historic

Cities of India
‘In Asia, the preservation of urban ensembles is not covered
by any legislation in some States Parties, as for example India,
although it has remarkable urban heritage.’ (p. 26, Final report of
the Audit of the Global Strategy and the PACT initiative, WHC-
11/18.GA/INF.8, 2011)

Articles in this section present the challenges in identifying,

nominating and managing this globally recognised urban
heritage of India

Source: Prayash Giria

 Bridging the Gap: Historic Cities of India 19

Recommendation on Historic
Urban Landscapes
Relevance in India
-<27,+26$*5$+$5

ABSTRACT

The relevance of the UNESCO Historic Urban Landscape (HUL)

Recommendation is examined in the context of preservation practice
in India, its historical development and contemporary pressures of
urbanisation and development in historic cities in India. Further
Jyoti Hosagrahar is Professor of Architecture considerations include the institutional frameworks for governance
and Planning at Columbia University, New of heritage in India and some of the key provisions of the HUL
York and Chair of the Doctoral Programme at Recommendation. An analysis of the Indian conditions in relation to
Srishti School of Art, Design and Technology, the provisions of the HUL Recommendation and approach reveal the
Bangalore. She is a member of the Indian challenges and potentials of applying the HUL approach in India with
Advisory Committee for World Heritage Matters,               
under the Ministry of Culture, Government   !    "" 
of India and a technical expert for UNESCO              #
on historical cities. Jyoti is the Founder and compatible development and improvement.
Director of Sustainable Urbanism International,
a research and design initiative committed INTRODUCTION
to the conservation of cultural heritage and
development of strategies for promoting The built heritage of India is rich and diverse; forts, palaces, temples,
culturally and environmentally sensitive tombs and dwellings of every kind abound. In the cities, 1,000 year old
strategies for urban development. monuments sit cheek by jowl with steel-and-glass creations and small
20 Bridging the Gap: Historic Cities of India

thatch hutments. Preservation practice with its focus on century. European fascination with and search for
material restoration very often remains fairly removed Indian antiquities, comparable to their pursuit of Greek
from culture, mythology and society. Since UNESCO  )  †        '
World Heritage Convention was passed in 1972, 24 Ancient texts, scripts, inscriptions, cave paintings
cultural heritage sites in India have been inscribed on and other material remains were at the centre of the
the World Heritage List. The monuments inscribed so investigations. The interest in Indian antiquities, art and
far represent a small fraction of India’s heritage. We are architecture became institutionalised as archaeological
in the unique position of having an enormous wealth studies with the establishment of the Archaeological
of urban heritage but no historic city or urban area Survey of India (ASI) in 1871. Alexander Cunningham
is inscribed on the list yet, although three are on the and other archaeologists discovered Buddhist stupas
Tentative List at the moment. (mound like or hemispherical structures containing
Buddhist relics) and unearthed ancient cities. They
More than half of the sites inscribed so far are located created lists and descriptions of the monuments they
in urban areas or are in close proximity to them. In     )         '
the context of India’s rapid urbanisation that is often documentation and conservation of ancient sites and
uncontrolled and accompanied by excessive building archaeological remains including monuments.
and debilitating poverty, heritage properties in urban
areas pose additional concerns for management. The Monuments were recognised for their architectural
pressures of development, inadequate infrastructure style and artistic accomplishment. Heritage structures
and employment opportunities and the rapid growth celebrated as monuments were objects to be
in tourism both nationally and internationally, visually admired, set apart as jewels. The Taj Mahal
pose a variety of threats to the destruction of *)     ' "  
heritage properties and their values. At the same setting of the monuments nor life within and around
time, history and heritage cannot be a burden for a it was considered in any way pertinent except for
country with a median age of 24, rearing to move places of worship that remained active as such. Cities
forward (Government of India 2011). Aspirations           
for improved living conditions, employment and British preoccupation with constructing a narrative of
)         ')   glorious Indian antiquity and medieval decline1 could
preservation. It is in this context that UNESCO’s HUL not justify valorising or protecting contemporary built
Recommendation offers a new approach to the practice environments such as medieval towns that continued to
of urban preservation that expands the idea of heritage thrive (Hosagrahar 2005). Thus, urban preservation has
far beyond a monument, seeking a dynamic continuity remained a much neglected area.
for historic urban areas that integrates preservation
goals with socio-economic development. In recent years, urban preservation practice has
received some impetus from tourism and through the
MONUMENTS AND THE CITY: URBAN work of local nongovernmental organisations and
PRESERVATION IN INDIA citizens’ groups in various cities as well as some city
development authorities. A large number of historic
  )   ))    cities now have heritage walks in place to build
expression in 18th century Europe with an emphasis awareness and educate. Jawaharlal Nehru National
on Greek and Roman antiquities. The earliest efforts Urban Renewal Mission (JNNURM) programme
included collections of historical works of art and   @\   ‡_         
artefacts that were placed in museums. Gradually,            )
this led to government control of designated sites awareness of urban heritage. Many historic towns have
and the establishment of norms and legislation for undertaken efforts to list heritage structures and create
the protection and administration of selected heritage inventories to help with monitoring and protection.
properties. In Europe, the idea of protecting cultural
heritage came to the forefront during the 19th century NATIONAL AND INTERNATIONAL
with the rise of the nation-state, the losses due to GOVERNANCE OF HERITAGE
frequent wars and rapid industrialisation.
The institutional framework for governing and
Modern notions of preservation came to India through )         ) (
the British colonial state in the latter half of the 19th on the way that urban areas in India can apply the
 Bridging the Gap: Historic Cities of India 21

HUL approach. Cultural heritage in India is governed individual heritage structures and street facades of
by the Ancient Monuments and Archaeological Sites buildings rather than urban areas and do not engage
and Remains or AMASR (Amendment and Validation) with continuities in the processes of urban generation,
Act, 2010. According to the Act revised in 2010, use and meaning, nor with issues of community and
cultural heritage is focused on ‘ancient monuments’ livelihoods or natural features. JNNURM Heritage
as structures, monuments and caves of historical, Cities Programme recognise some historic urban areas
archaeological or artistic interest; and ‘archaeological but the idea of integrating development with heritage
sites and remains’ as an area containing ruins or relics preservation is as yet inadequately supported through
of historical or archaeological importance all of which        
must be 100 years or older.2 The ancient monuments,
      )       International norms and standards over the years
being of national importance are evaluated for their have progressively broadened the understanding of
historical, archaeological and architectural value and monuments to cultural heritage.3 In many countries
other factors relevant for such categorisation. '           
heritage goes far beyond single monuments and
The National Mission on Monuments and Sites archaeological sites to include historic districts and
(NMMA) as a national mission on Indian’s tangible territories. In addition, preservation efforts have
heritage is aimed at developing a comprehensive moved from concentrating solely on the structures of
database of archaeological sites, built heritage and the powerful and wealthy to an appreciation of their
antiquities. ASI, as the key government agency charged interconnectedness to the vernacular fabric in which
with the protection of monuments and archaeological they are situated. Artistic and religious practices,
sites, manages the properties that are evaluated as being festivals, folk music and dance, gardens, open spaces
of national importance and are centrally protected. and streets are the connective tissue that bind the
Departments of Archaeology in each state follow a built world into an organic whole. Even the remains
similar mandate and guidelines for State Protected of mines and mining settlements have achieved
monuments and sites that are assessed to be of state heritage status in recent years in UK and Japan. The
   ? ) ' )    Richtersveld Cultural and Botanical Landscape in
Act is an emphasis on preservation of the material South Africa, home of the semi-nomadic Nama people,
remains of ancient, archaeological, monumental and       '  ))   
artistic built environments. (      )'    
for over two millennia. The institutional structures for
In contrast, the Town and Country Planning Act in managing such heritage are also equally complex.
India governs the development of land, development
controls and the preparation of master plans as THE PRESSURES OF DEVELOPMENT IN
statutory instruments prepared by State Departments HISTORIC URBAN AREAS
and government bodies. The Environment Protection
Act 1986 can help protect the natural features in India faces unprecedented urbanisation and increasing
urban areas. However, neither of these are aimed at pressures of development. The greatest challenge in
the comprehensive protection of historic urban areas             (  
especially from the perspective of growth and change. pressures of preservation of heritage elements with
The diversity of urban heritage in India calls for a sustainability and local economic development.
range of approaches and management mechanisms Pressures for development have made modernisation a
that are presently nonexistent. Few urban areas are priority. However, modernisation projects such as road
recognised and protected as being of heritage value. building and drain building in urban areas are often
Mumbai and Maharashtra have been at the forefront formulaic solutions based on universal models and
of establishing Heritage Regulations in 1995 that have global technological capabilities that are insensitive to
been adopted by several other cities in Maharashtra and local resources and cultural frameworks.
become a model for other states. Ahmedabad has also
drawn from the Mumbai regulations and other cities in Faced with the pressures of rapid urban growth,
Gujarat incorporated amendments in 2007 (Jain 2008). inadequate infrastructure and debilitating social
Hyderabad has also established regulations with others inequities, those in favour of large scale modernisation
in process in Andhra Pradesh. However, a majority interventions, pit development against conservation in
of the heritage regulations are aimed at protecting the allocation of scarce funding. With the promise of
22 Bridging the Gap: Historic Cities of India

greater economic returns from grand modernisation externalities of tourism have distorted the value
projects, businesses, citizens and governments of heritage and destroyed the fragile systems that
alike have been complicit in turning a blind eye nurture it. Tourism can introduce or accelerate social
to the neglect and destruction of cultural heritage. change and revive folk arts but also exacerbate
Furthermore, heritage threatened by the inadequacy of ))  
infrastructure in many places is further endangered by
  '        )     KEY CONCEPTS OF THE HUL
heritage at the national and local levels as well as a lack RECOMMENDATION
of institutional capacity to manage a range of heritage
and development issues. The value of the HUL Recommendation is in its
recognition of urban heritage including tangible and
Rapid and excessive urbanisation and the pressures intangible components, in their natural context, as a
of commercial development also have a negative resource in enhancing the liveability of urban areas
impact on urban heritage. In metropolitan areas, with and fostering economic development as well as
increasing real estate values and commercialisation of social cohesion. Rather than a new category of World
properties, including places where heritage structures Heritage, HUL is an approach towards preservation
have been protected, the structures are in danger of practice. The HUL approach integrates the goals of
being isolated in a jungle of concrete and glass towers conservation of urban heritage with the goals of social
that overwhelm their character and identity. and economic development and sustainability of the
urban areas in general. Places may be sites, historic
Tourism that is inadequately planned and managed areas or settlements shaped by people and nature over
can add to the pressures of development in and around time that contain tangible, intangible, cultural and
historic towns and cities. When excessive in number natural heritage. The boundaries of such areas vary
and insensitively designed, tourists and tourism in subject according to place, people and heritage
facilities can destroy the character and identity of an resources. As the cultural, economic, environmental
   (     )               (  
familiar modern amenities and the environmental dimensions, the HUL approach aims for an integrated

The natural setting of the historic town of Badami is an essential part of its identity
 Bridging the Gap: Historic Cities of India 23

set of urban policies and interventions that address Aside from the monuments and archaeological sites
contemporary needs and aspirations while embracing listed and protected by central and state agencies,
the layers of meaning and values of the place. elements such as elevations, public spaces, riverfronts,
skylines and streetscapes remain largely unrecognised
The HUL Recommendation integrates the goals of and unprotected. Comprehensive inventorying and
urban heritage conservation with social and economic mapping of historic urban areas and their heritage
development. The approach aims to preserve and assets, beyond individual structures, is essential for the
enhance the quality of urban environments while application of a HUL approach.
fostering productive and sustainable use of urban
spaces. The concept is rooted in a symbiotic and For a variety of reasons, the socio-economic
nurturing relationship between urban and natural condition of communities in many historic towns
environments as well as cultural and creative ones. and historic parts of cities is much poorer than of
Inherent to the approach is a perspective that cultural those in contemporary cities (UNESCO 2010). The
diversity and creativity are valuable assets for overall historic parts of cities and towns are often places of
human development. poverty, congested and overcrowded with inadequate
infrastructure services, informal economy, decrepit
The HUL approach advocates a more expanded view housing stock and marginal access to global technology
of cultural heritage that includes the natural features and markets. The structures often require not only
   ' )       )   material restoration and repairs but also, updating of
as a broad variety of material things and immaterial infrastructural services and adapting to contemporary
practices. Tangible heritage includes immovable assets usage. With changing political and economic
such as the houses, streets, neighbourhoods and towns  )  )'     
that are more than 100 years old4, whereas intangible themselves becoming increasingly obsolete in the
heritage includes crafts, dance, music, theatre and contemporary city. Vanishing crafts and the loss of
visual arts. Artisans, master builders and master crafts traditional livelihoods in historic towns compounds
persons are also important heritage resources. Heritage the economic problems in these urban places. In many
transmits the memory of human societies through places, the need for poverty alleviation programmes
forms of expression and thereby binds material objects seem as urgent and important as the protection of
to the immaterial dimensions that lend them meaning. heritage assets.
The HUL approach emphasises on processes and
relationships between different components rather than Maps and property records are often woefully
viewing the city as a collection of structures. Learning inadequate. With a majority of properties in private
from the traditions of communities and promoting ownership and lots of grey areas of community spaces,
respect for their values are key aspects of the HUL ownership is hard to establish. Investment and tax
approach. In India, respect for traditional knowledge         %   
' )  =        (  *   often complicated and messy in historic urban areas
of traditional knowledge systems. These knowledge   >           
' )          ) Moreover, since a majority of ordinary buildings
relevant in the contemporary context. are under private ownership, conservation work is
constrained by the limitation of public expenditure on
CHALLENGES OF MANAGING URBAN     '         
HERITAGE private owners are necessary reforms to promote the
protection and improvement of private properties.
In addition to the pressure of development, threats
of deterioration and destruction of heritage today are A major challenge in the application of HUL approach
imminent for several reasons. India’s vast geographical in India is coordination between agencies. Any
and cultural diversity has resulted in a wide variety new construction of buildings, building bye-laws,
of urban heritage ranging from medieval forts like drains, housing development including affordable
Jaisalmer to colonial cities like Mumbai and Chennai, social housing, lakes, master plans, plant material,
temple towns like Madurai and Srirangam and modern streets, tourist facilities, water supply and sewage
planned cities like Chandigarh and Jamshedpur. Even and wells involves a large number of agencies and
    )            departments. Agencies and departments not charged
leap in the Indian context. with managing culture and cultural heritage have little
24 Bridging the Gap: Historic Cities of India

The dilemma of balancing commercialisation with livelihood generation for local communities in Jaisalmer Fort

training on heritage issues and typically give them no character, visually, in terms of their building process
consideration. The absence of coordination between and in their meaning to maximum extent possible.
agencies and a multidisciplinary approach implies, The UNESCO World Heritage Convention already
for instance, incompatible tourism facilities, poorly places a great deal of emphasis on the involvement of
)   ))  '   =  local communities for the protection and management
facilities and inadequate solid waste management. of heritage properties. The HUL approach with
This can destroy the heritage value of a historic urban its emphasis on guiding growth and change for
area both visually and in the use of urban spaces. continuity of identity and character requires even
None of these involve direct interventions on the greater engagement of stakeholders at every stage
monuments themselves. Furthermore, as was evident of intervention. Without a systematic process for
in the preceding discussion of laws and governance of stakeholder engagement, community engagement can
urban heritage, strengthening institutional and legal be reduced to ineffective tokenism.
frameworks for implementing the HUL approach is
necessary for its successful application. At the other extreme of destruction by routine and
formulaic modernisation efforts is the destruction of
An integrative approach is one that not only focuses     '        ))  
on the preservation and restoration of monuments but marketed for its exoticness. A bias exists for the aspects
also manages growth and change. This implies that        ' ))    
experts and consultants involved with the management ecological, economic, physical and social fabric of a
of urban heritage also need multidisciplinary skills historic urban area are transformed or destroyed, the
and approaches. While multidisciplinary teams built fabric stands in danger of becoming a pastiche
are valuable, a fundamental training in integrative of hollow, consumable images with structures,
thinking and urban preservation planning is necessary settings and rituals that caricaturise and sanitise an
so that development activities, tourism, growth and aesthetic past. Some critics to regard this selection
change can be as effectively managed as the material of the delectable and delightful in a heritage place as
restoration of the heritage structures. Guidelines for entertainment and not as a repository of knowledge.
urban regeneration can help to guide new constructions The process of constructing exotic and picturesque
in historic urban areas to manage their identity and      )    
 Bridging the Gap: Historic Cities of India 25

SIGNIFICANCE OF HUL FOR to certain type of natural hazards, such an approach

MANAGING URBAN HERITAGE might help build resilience to natural disasters. Third,
by including the social and economic dimensions, the
The HUL approach is valuable to apply in the HUL approach looks upon heritage assets as resources
   *    )      ?!/Y for development and poverty alleviation. For instance,
integrated approach to conservation and development heritage could become a resource to help generate
is essential for living heritage such as in many historic improved livelihoods in low-income areas.
cities in India. In historic urban areas that have been
continuously inhabited since they were established Fourth, the HUL approach, in evaluating and
and where traditions and practices of living and guiding proposed development through a variety of
working have build upon the beliefs and knowledge of mechanisms such as master plans, development control
              guidelines and cultural and environmental impact
conservation and development is more sustainable than assessments prior to their implementation, promotes
polarising them. mitigation of their negative impacts. Thus, in addition
to historic cities and urban areas, the HUL approach is
Second, by including local knowledge, practices and valuable for management of all heritage properties in
the natural environment as heritage assets, the HUL urban areas.
approach recognises the relationship of built heritage
with its economic, ecological, geographical, historical The World Heritage Committee now requires all World
and social context. Seeking continuities in the built Heritage properties to have a management plan in
fabric by preserving and regenerating as many of the place. Adopting models for management plans from
relationships as possible, such an approach promotes other contexts such as the France, Italy or United
sustainability. In many instances, in places vulnerable ˆ  )           

          

Chhatrapati Shivaji Terminus, Mumbai
26 Bridging the Gap: Historic Cities of India

problems faced by heritage properties in India. World cross-section of stakeholders. Efforts to strengthen
Heritage properties have not only a core zone that is local communities and involve local stakeholders
the heritage property but also a buffer zone that may are essential for decentralised governance of historic
be a much larger area around the site. Many of the urban areas. Community participation and stakeholder
management issues faced by the sites and their buffer involvement is a matter of policy as well and needs to
zones have not only to do with conservation but also be treated as such.
with roads, tourism, urbanisation and others that fall
under the mandate of government departments and In order to take the greatest advantage of the HUL
agencies other than those charged with preservation of Recommendation and apply the HUL approach in
cultural heritage. a successful manner, there is a need to rethink and
expand the idea of cultural heritage far beyond a
 '        ))   monument, seeking a dynamic continuity for historic
inhabit the historic urban areas is an important aspect urban areas that integrates preservation goals with
of HUL. Community engagement empowers a diverse socio-economic development.

Bibliographic references Notes relics of historical or archaeological importance

x Government of India 2010, Gazette 1
          which have been in existence for not less than
2
       Government of India, 1958, AMSAR Act. one hundred years, and includes- (i) such
Justice, New Delhi. “Ancient Monument” means any structure, portion of land adjoining the area as may be
x Government of India 2011, Census of India, erection or monument, or any tumulus or place required for fencing or covering in or otherwise
New Delhi. of interment, or any cave, rock-sculpture, preserving it, and (ii) the means of access to,
x Hosagrahar, J 2005, Indigenous inscription or monolith which is of historical, and convenient inspection of the area;”
3
Modernities: Negotiating Architecture, and archaeological or artistic interest and which           
Urbanism, Routledge, New York. has been in existence for not less than 100 World Heritage Operational Guidelines to
x Jain, S 2008, ‘Heritage Regulations: An years and includes-(i) remains of an ancient include cultural landscape and modern
Overview’, Unpublished, IHCN Second monument, (ii) site of an ancient monument, heritage.
4
Biennial Conference, Hyderabad. (iii) such portion of land adjoining the site of In some countries it is 50.
x UNESCO 2010, Historic Districts for All- an ancient monument as may be required for
India: A Social and Human Approach to fencing or covering in or otherwise preserving
Sustainable Revitalisation, UNESCO, New such monument, and (iv) the means of
Delhi. access to, and convenient inspection of,
x UNESCO 2011, UNESCO World Heritage ancient monument;...” “archaeological site
Operational Guidelines, UNESCO World and remains” means any area which contains
Heritage Centre, Paris. or is reasonably believed to contain ruins or
 Bridging the Gap: Historic Cities of India 27

Delhi’s Imperial Capital Cities

World Heritage nomination and
management of change
,17$&+'(/+,&+$37(5

ABSTRACT

Delhi is the only city in the world that represents at a single site, two
outstanding examples of Imperial city planning; the Mughal city of
Shahjahanabad and the British Imperial Capital of New Delhi, which
were built by the respective sovereign rulers at the height of their power
and accomplishment. In today’s time of globalisation, Delhi is severely
affected by development pressures. Existing planning policies have
          "   
factor causing the deterioration of the urban fabric is the ineffective
implementation of existing development controls. Despite planning and
development controls, a lack of enforcement of these in rehabilitation
and regeneration projects, was adversely impacting the urbanscape.
Additional management mechanisms have been proposed for the site to
The Indian National Trust for Art and Cultural       $      % &$%'  
  !"#$ %&     will be protected.
setup in 1984, to protect and conserve India’s
natural, built and cultural heritage. The Delhi BACKGROUND TO THE NOMINATION
& "#   &  '
address the heritage of Delhi. It is currently The city of Delhi, in its current avatar is iconic of the country’s growth
preparing the dossier for nominating Delhi as a and aspirations. However, Delhi’s unique characteristic is not its modern
UNESCO World Heritage City. urbanscape but its extraordinary heritage that contains remains from the
28 Bridging the Gap: Historic Cities of India

the new capital of the Mughal Empire for Emperor

Shahjahan in the mid17th century (1638- 1648 AD) and
New Delhi, the new British Imperial Capital, (1912-31
AD) designed by Sir Edwin Lutyens and built adjacent
to the Mughal city.

Shahjahanabad, the largest planned Mughal city,

epitomises the grandeur and splendour synonymous
with the word ‘Mughal’, expressed in the urban
morphology of the city through broad ceremonial
avenues, linking important monuments and city gates.
The city’s character as the economic heart of a rich
empire was manifested in the markets that line the
   $  " & (     
the fusion of the two dominant themes of the early
20th century city planning, that is, the City Beautiful
and the Garden City.1 As in Shahjahanabad, the broad
ceremonial avenues, anchored by grand buildings, are
expressive of the pomp and circumstance of the Raj.
The grouping of palaces of the Princely States around
the hexagonal layout mirrors the diversity of the semi-
independent political entities under the umbrella of
imperial rule. The carefully planned tree planting is an
important part of the garden city ethos. Both the cities
are outstanding examples of imperial town planning
principles of their times.

LEGAL FRAMEWORK PROTECTING

DELHI’S ARCHITECTURAL HERITAGE

Eight different cities were established in the triangle formed by A multilayered, multi-tiered and rather complex
the Ridge and River Yamuna. Source: INTACH, Delhi Chapter policy framework and protection mechanism is
in place that is meant to protect and conserve the
Stone Ages to the last Imperial Capital City of the remarkable architectural heritage of Delhi. At the
British Raj. Dynasty after dynasty that ruled from Delhi apex or the highest level of protection is the UNESCO
built their capital cities here, within the triangular area World Heritage Convention, 1972, also known as
between the Delhi Ridge Forest and the River Yamuna. the Convention concerning the protection of the
The legacy of the last thousand years is of particular World Cultural and Natural Heritage, which is the
    )    '  international agreement that established the World
monuments, some extraordinary enough to have been Heritage Centre and the World Heritage List. India is
inscribed on UNESCO’s World Heritage List. a signatory to the World Heritage Convention and is
therefore mandated to take cognisance of UNESCO’S
The larger canvas of India too, has numerous cultural conventions and charters and ensure that the accepted
and natural heritage sites inscribed on UNESCO’s           
list of World Heritage sites. Strangely, not a single Delhi has three World Heritage sites, one of which
historic Indian city has been inscribed on this. This is is the Red Fort, located within the area proposed for
despite the fact that India is among the world’s ancient nomination as the Imperial Capital Cities of Delhi.
civilisations and has several historic cities, which
  ' † '   ?        Other sites of national importance are being conserved
with this idea of bridging the gap that the nomination as individual monuments by the Archaeological Survey
of Delhi as a UNESCO World Heritage City is being of India (ASI). The National Conservation Policy
considered with all earnestness. The areas proposed for Monuments, Archaeological Sites and Remains
for nomination comprises of Shahjahanabad, built as protected by ASI in May 2013, aims to not only draw
 Bridging the Gap: Historic Cities of India 29

Area proposed for nomination as Delhi’s Imperial Capital Cities comprises of the Mughal walled city of Shahjahanabad and the
Imperial City of the British Raj. Source: INTACH, Delhi Chapter

from ASI’s rich legacy for conservation and but also of national importance. State protected monuments,
draws from various international guidelines, in its structures and sites are protected by the Delhi Ancient
attempt to a more inclusive and contemporary approach Monuments and Archaeological Sites and Remains
to conservation. The various international charters Act 2004. Other heritage sites and precincts have been
on conservation of historic sites including the Burra addressed by the INTACH Charter, drafted in 2004.
Charter, 1999; Nara Document on Authenticity, 1994; INTACH’s Charter brings up other topics as listing and
Venice Charter, 1964 etc., have been followed by the its criterions and methodology.
           
monuments. The primary planning legislation of the city is the
Delhi Development Act 1957 along with its subsidiary
The policy attempts to put a monument in perspective legislations, the Master Plan of Delhi and respective
as a ubiquitous part of its setting, underpins the role Zonal Development Plans. The following series of
of local communities and traditional craftsmanship legislation, regulations, bye-laws and policies are
as an integral part of the conservation process. It  (' )) ‰
also deals with very important and topical aspects x Master Plan of Delhi 2021(MPD 2021) has
like tourism, development, capacity building and provisions for the conservation of the built heritage.
building partnerships. This policy understandably & &)   ' &&   
focuses only on monuments, archaeological sites and time, included a chapter on the conservation of
remains, protected by ASI’s Ancient Monuments and Delhi’s architectural heritage, identifying, inter
Archaeological Sites and Remains Act 1958 and the alia, 1208 individual buildings possessing heritage
Ancient Monuments and Archaeological Sites and   )    '  *    
Remains Rules, 1959, amended in 1997 to provide precincts and three archaeological parks. Three of
for prohibited and regulated areas around monuments the monuments of Delhi have already been accorded
30 Bridging the Gap: Historic Cities of India

World Heritage status by UNESCO, while 174 of or enhanced in value in subservience to monuments,
them are being protected by ASI as monuments conservation precincts and natural heritage.
of national importance. The MPD 2021 is a path
breaking step in the planning and management of In reality however, an indiscriminate application of the
cities of India in general and Delhi in particular. Acts has proved counter-productive in the economic
x Building Byelaws 1983, amended vide clause 23 and physical regeneration of areas that were earmarked
has a chapter on Conservation of Heritage Sites as Special Areas in the Master Plan, sometimes
including Heritage Buildings, Heritage Precincts and leading to its condemnation, for example the whole
Natural Feature Areas.   $ '      )   Slum
x The Delhi Urban Arts Commission Act, 1973 Area Act, 1956. The present complex framework also
x The Wakf Act, 1995 acts as a barrier in the conservation of heritage, urban
x The Indian Forest Act, 1927 renewal, land assembly, legitimate property tenure,
          
  Jƒ& (    '        mobilisation, development rights, etc. (Jain 2004).
'       Jƒ& @Š‡\     
main objectives, the protection of the memories and However, in today’s time of globalisation, Delhi’s
visual linkages between the seventh and eight historic heritage is most severely affected by development
cities of Delhi. MPD-2001 and MPD-2021 further pressures. In fact Delhi is among the few global
promote this interplay through broader development metropolitan capitals where history and development
and redevelopment parameters so as to ensure that this   (      ))     
historic amalgam of the core of the National Capital last planned city (New Delhi), the city has grown
Territory of Delhi (NCTD) within the National Capital exponentially, despite the Master Plan which
Region (NCR) and the nation beyond is kept at a lower addresses 1,483 square kilometres of the NCT of
intensity and with more greenery than the rest of the &  !  '   J  ƒ  &
NCTD. In addition, public spaces and benchmark did not adequately recognise nor address how planned
buildings are proposed to be guardedly provided and/ redevelopment of the city would take place.

Red Fort Master plan of Delhi recognises both Shahjahanabad and New Delhi as Heritage Zones. Source: Nitika Agarwal
 Bridging the Gap: Historic Cities of India 31

INEFFECTIVE IMPLEMENTATION OF
EXISTING POLICIES

In the context of the nomination of Delhi as a UNESCO

World Heritage City, both Shahjahanabad and New
&       )      
with development pressures. Most affected today is
the Mughal Imperial Capital city of Shahjahanabad.
The Walled City, which was originally planned for
a population of about 60,000, recorded the highest
population of 0.42 million in 1961, which went down
to 0.35 million in 1991 and 0.235 million in 2001. ‘The
population has been declining mainly due to inroads
The traditional heritage fabric is being replaced by modern
of commercial activities, and deteriorating living structures. Source: INTACH, Delhi Chapter
conditions. The Walled City has continued to become
increasingly congested with trade and commerce’
Jain, (2004, p.31). Soaring land prices are the cause
for old structures to be demolished and replaced with
multi- storied new construction. ‘Commercial activity
has increased manifold overwhelming the residential
population, and swallowing the spaces, the graces
and the entertainments of this urban centre’ (Chenoy,
Mitra & Shama 2011, p.70). Anticipating this, the
MPD 2001-2012 recognised Shahjahanabad as a
‘Heritage Zone’ and special byelaws are proposed to be
developed to preserve what is left of the urban fabric
of havelis (traditional courtyard houses), bazaars and
street patterns.

MPD-2001 stipulates that the Authority shall formulate

Special Development Plans for conservation and
improvement of Walled City and no alteration or
demolition of any building without the consent of the
Authority will be allowed. However, to date the bye-
laws have not been formulated. Furthermore, the Floor
Area Ratio (FAR) presently allowed in the walled
city for reconstruction is the same as that of a plotted
development, which is generally much less than the
existing built up area. This is a major disincentive
for urban renewal. As a result massive unauthorised What was once a residential pocket is now taken over for
reconstruction and conversions of land use are taking commercial activities. Source: Prayash Giria
place in the Walled City.
ever materialised. What was once perceived as a
The absence of these building controls has led to perfect solution for Shahjahanabad, the shifting of
the construction of high-rise buildings such as the wholesale trade, noxious industries and hazardous
Civic Centre, commissioned by none other than the trades outside the walled city have by and large
Municipal Corporation of Delhi (MCD) on the axis )       '  
that connects New Delhi to the Jama Masjid. Neither large scale encroachments on public land, particularly
the legal framework, nor the present organisational on public roads. All these continue unabated to this
structure has been able to control unauthorised day. In addition to this, the once well planned and
reconstruction of historical havelis. None of the effectively administered city is today plagued by an
intentions of taking up any meaningful redevelopment unending plethora of legal disputes regarding property
of dilapidated, degraded and dangerous areas has ownership, tenancy, misuse, licensing and other issues.
32 Bridging the Gap: Historic Cities of India

buildings which came up in the 1970s and the 1980s

around Connaught Place, the commercial hub of New
Delhi, disturbing the visual rhythm and balance of the
planned city.

The multi-storeyed development around Connaught

Place (now referred to as Rajiv Chowk) has marred
the character of the garden city. Even architects like
Charles Correa who drew inspiration from India’s
unblemished rural traditions, designed the LIC Building
with mirror glass and space frames, in Connaught Place
that ‘apes the fashionable gimmicks of contemporary
architecture in the West’ (Tillotson 2011, p.184). Other
prominent structures that still mar the New Delhi
skyline are the Meridian and what is today known
as Hotel Shangrila. Monitoring mechanisms were
however quick to react and the Department of Urban
Development imposed the Lutyens Bungalow Zone
(LBZ) Guidelines in February 1988. However, neither
 /„Œ „'        
under any prevailing planning Law and the boundary
has remained open to interpretation. The boundary
Hotel Meridien that towers above the treeline in New Delhi. has been reviewed over the subsequent years, through
Source: Abhiram Sharma
administrative and executive action, whenever a
realisation set in that the character of the area had to be
preserved. In 2003, if was felt that the character on both
sides of the road should be preserved and the boundary
was delineated to accommodate this.

There are also some instances where there has been

a compromise of the visual impact of the site, but
increased awareness about the value of Delhi’s
heritage has helped the situation to a large extent. For
instance, the police memorial structure being built in
$ ='   (      
of New Delhi, threatened to block the view along
Shanti Path, of the dome over Rashtrapati Bhavan.
Developments like the LIC Building in Connaught Place change The Delhi Urban Arts Commission (DUAC) ordered
the skyline of the garden city. Source: INTACH, Delhi Chapter that the construction of the structure be stopped. All
view corridors are now being carefully monitored. The
A lack of clarity regarding the development controls nomination is also providing for buffers in the direction
in New Delhi too led to a slow disintegration of parts of the key views and vistas to ensure continuity and
of the garden city. According to New Delhi Municipal connectivity to the nominated property.
Corporation 2007.
Delhi’s Imperial Zone remained fairly untouched and The conservation of the vistas and verdure of Imperial
continued to be an oasis of green until 1970s when there " &   )    '  
was organised destruction of the character of the area the MPD and the policy regulating the development
which was excluded from Lutyens’ Bungalow Zone. of the precinct. Though some towering structures
Beautiful and elegant residential quarters with green had been allowed to mushroom in the middle of New
open spaces were demolished giving way to some of Delhi’s low rise vistas and axial compositions, ensuring
the ugliest buildings in Delhi (Pran 2011). What was that regulations as described in the MPD 2021, if
    / 'Y „  Œ     formulated and put in place will hopefully address
it, the construction of a slew of multi-storeyed high rise these issues.
 Bridging the Gap: Historic Cities of India 33

of all stakeholders from various departments of the

Government of National Capital Territory of Delhi
(GNCTD) and other concerned groups and will be
headed by the Chief Secretary. The committee will be
 '          '
the Chief Secretary. The committee will meet once a
month and allow public representation at the meetings.
The role of the committee:
x Formulate policies for the area proposed for
nomination
x Oversee implementation of Site Management Plan
x Promote new thinking in management systems for a
city without taking away from the autonomy of each
Ministry of External Affairs building uses the architectural
language adopted by Sir Edwin Lutyens and blends seamlessly
stakeholder.
with the central vista ensemble. Source: Abhiram Sharma
The role of the World Heritage Secretariat will be to
coordinate the implementation of the Management
Plan and ensure that all stakeholders play an active
role in protecting the OUV. The mandate of the World
Heritage Secretariat:
x Plan the implementation of the Site Management
Plan via yearly implementation plans and review
and update the Site Management Plan. Liaise with
all stakeholders and local community for effective
implementation of the Site Management Plan.
x Initiate and monitor projects recommended in
the Site Management Plan. Facilitate actions and
>  '          
objectives of the Site Management Plan and boost
National Archives designed as part of the Central Vista the OUV of the area proposed for nomination.
ensemble. Source: INTACH Delhi Chapter x Investigate and pursue sources of funding for
implementing various projects and recommendations
ADDITIONAL PROPOSED MANAGEMENT       J ) ƒ
MECHANISMS x Monitor the condition of the proposed World
Heritage Site and ensure that its OUV is protected at
As described above, the Government of India and all times. Prepare all State of Conservation reports
the Government of the NCT of Delhi have a well and Periodic Reviews as required by UNESCO.
established system of governance to protect the areas Set up of best practices for conservation and
proposed for nomination. In order to be effective and management. Encourage sustainable means of
adequately address the emerging issues in the area conservation involving local craftsmanship.
proposed for nomination, it is necessary to ensure x Service the Apex Steering Committee and coordinate
implementation of the existing legal framework and the activities of the Working Groups.
procedures. The Site Management Plan for the area x Initiate and undertake research and interpretation
proposed for nomination which is under preparation, of various aspects of the proposed World Heritage
therefore suggests an additional Management System. City. Promote awareness of the World Heritage
This proposed three tiered Management System will        ?    = 
 '      %!~  & Y and capacity building sessions for stakeholders on
Imperial Capital Cities. a regular basis. Organise and host conferences and
seminars on topics related to World Heritage.
An Apex Steering Committee headed by the Chief
Secretary to ensure the protection of the OUV of the Working Groups are proposed to be formed to
World Heritage Site and oversee the implementation     ))      > 
    J ) ƒ       and recommendations listed in the Site Management
34 Bridging the Gap: Historic Cities of India

Plan. It may comprise of the following individual the process of rapid economic development. The
professionals or institutes that will be called upon as fundamental objectives of conserving monuments and
advisors/consultants: heritage of cities are therefore not only to preserve
x Structural engineer memory in the form of the monuments and heritage
x Conservation architect precincts, but create a distinctive identity for the physical
x Landscape architect environment in which it exists and in which citizens live
x Historians and operate. Preservation of the past should pave the
x Archaeologist way to developing the future buildings and cities.
x Risk management consultant
The message that has been conveyed is that instead of
THE MYTH, ‘WORLD HERITAGE trying to emulate the image of cities like Singapore,
NOMINATION IS ANTI-DEVELOPMENT’ Shanghai or Dubai, urban planners in Delhi should
focus on conserving the heritage of the city as it
A frequent question one is faced with while proceeding offers an alternate strategy to modernise Delhi in its
with the nomination process for Delhi is, ‘Does World own unique way. Stakeholders are no longer wary of
Heritage Status mean an end to development?’ This World Heritage status and are willing to lend it their
is a common myth and every effort has been made to maximum support.
explain to the bureaucracy and government machinery
that development can continue, albeit in a controlled Further, management of the heritage is a continuous
)     ' '     process and the central, state and local governments
OUV of the area proposed for nomination. According have already committed to the protection of the
to Menon (2010): heritage. The governments have also allocated
In a globalising environment, the identity of a nation, substantial funds to improve the physical environments
        '     of the heritage precincts in a phased manner.

Bibliographic references * Liddle, S & Lopez, A (ed.) 2010, Delhi: A * Tillotson, G 2011, ‘Continuity and Change
* Chenoy, Mitra, Shama, 2011, ‘Urban Living Heritage, INTACH, IGNCA, New in the Modern Architecture of Delhi: Post
Morphology of Shahjahanabad’, Mughal and Delhi. Independence Perspectives’, Mughal and
Colonial Delhi- Seminar Papers, INTACH, * Menon, AGK 2010, ‘Delhi: A World Colonial Delhi- Seminar Papers, INTACH,
Delhi Chapter, New Delhi. Heritage City’, International Conference Delhi Chapter, New Delhi.
* Gupta, N & Jain OP 1999, Delhi, the Built on the Conservation of Shahjahanabad
Heritage: A Listing, INTACH, Delhi Chapter, and Lutyens Bungalow Zone: Contrasting Notes
1
New Delhi. Conservation Imperatives for the Growing Sir Edwin Lutyens, the town planner
* Jain, AK, 2004, ‘Regeneration and Renewal Metropolis of Delhi, INTACH, Delhi Chapter, of Colonial New Delhi, seamlessly
of Old Delhi (Shahjahanabad)’, ITPI Journal, New Delhi. amalgamated the Garden City Concept
vol. 1, no. 2, pp. , viewed November, 2013, * Miller, Mervyn, 2011, ‘Vistas and Verdure: with the City Beautiful Movement ideology,
<http://itpi.org.in/pdfs/april2004/chapter4. Lutyens’ Plan for New Delhi’, Mughal and both dominant town planning themes at
pdf>. Colonial Delhi- Seminar Papers, INTACH, the beginning of the 20th century, to plan
* Jain, AK 2010, Lutyen’s Delhi, Bookwell, Delhi Chapter, New Delhi. the grandiose new capital that the political
New Delhi. * Nevile, Pran 2011, ‘Delhi’s Imperial Zone’, opinion of the time wanted. The genius of its
* Jain A.K, 2010, ‘Shahjahanabad- the Future Mughal and Colonial Delhi- Seminar design lies in the integration of vista (views)
of its Past’, International Conference on Papers, INTACH, Delhi Chapter, New Delhi. and verdure (greenery), thus responding
the Conservation of Shahjahanabad and * New Delhi Municipal Council 2007, Lutyens to the local contexts of climate and history.
Lutyens Bungalow Zone: Contrasting Bungalow Zone – Report on matters The imperial moment created Colonial
Conservation Imperatives for the Growing concerning Delineation of LBZ Boundaries, New Delhi, but surprisingly it is serving the
Metropolis of Delhi, INTACH, Delhi Chapter, Development Control Rules, and other republican nation as well.
New Delhi, pp. 20-37. associated Issues, NDMC, New Delhi
 Bridging the Gap: Historic Cities of India 35

Lessons Learnt from the World

Heritage City of Strasbourg
0,1-$<$1*

ABSTRACT

*    #          #
         
of Strasbourg. These have also impacted its relationship with the
surrounding villages and towns, giving territorial coherence to the area
administered today as the Urban Community of Strasbourg. The World
  +   #           "  
France and global commitments towards climate change, have guided the
urban policies adopted by Strasbourg. National legal and management
frameworks that govern the application of international conventions
in France, notably for heritage protection, can work as a reference to
Minja Yang is the President of Raymond show that national laws and regulations as well as management bodies
Lemaire International Centre for Conservation, still require strengthening in India to protect, conserve and valorise
Belgium. She was formerly Deputy-Director         +     
UNESCO World Heritage Centre and Operational Guidelines. Recent initiatives have resulted in a process
=        @=  Q of mutual co-operation between Strasbourg and Udaipur to encourage
Throughout her career at UNESCO she was heritage based development for the city of Udaipur.
responsible for Special Projects on Urban
Heritage for Development. Since retiring from INTRODUCTION
UNESCO, Minja is a consultant on Culture and
Development specialising in World Heritage France, a nation that until recently was predominantly characterised by its
sites urban heritage management. numerous rural, agriculture based communities, has encountered a process
36 Bridging the Gap: Historic Cities of India

implementation of laws in France on cultural heritage

conservation with those on right to housing and
environment protection, serve as a valuable example of
the inter-sectorial and integrated approach in heritage
conservation promoted by UNESCO.

HERITAGE ASSETS OF THE CITY OF

STRASBOURG

         (   

River bordering Germany, the City of Strasbourg lies
in the Upper Rhine Valley supplied by four rivers; the
Rhine, the Ill, the Bruche and the Kinzig. It is bound
between Vosges Mountains to its West and the Black
Forest to its east. Human occupation of the area of
Strasbourg in France Strasbourg dates back to some 600,000 years to the
of rapid urbanisation. The preservation of the built Bronze Age and by the 10-12 BC it had become a
heritage of villages and towns in France have enabled    )  )        
the survival of small and medium size towns offering a grown into an important military centre and economic
quality of urban life distinct from those offered by a big crossroads by 20 AD.
metropolis or the suburbia. Moreover, Strasbourg has
managed to maintain the testimonies of its past. Today,     (     $ '    
it is globally recognised for the diversity of its cultural its tributaries, has also provided vital water sources
heritage, its contemporary architectural additions and for the area. The extensive water networks referred to
for the innovative manner in which its educational and as the ‘blue corridor’ and the mountain ranges called
research institutions deeply rooted in its history have the ‘green corridor’ characterise the natural features
been nurtured to serve as the springboard for its urban
and regional development.

It may be argued that the French experience with its

 '  )       
   )    )    
as well as the difference in the mode of governance and
     )= )    
context. On the contrary, there are important lessons
that can be learnt and applied due to commonalities
such as rapid urbanisation, rich cultural heritage and
distinct quality of life in small and medium towns.
It is with the aim of such a transfer of knowledge that
UNESCO and the Indian Heritage Cities Network
Foundation (IHCN-F) brokered a technical cooperation
   '+ + '       
Udaipur, with the City of Strasbourg in 2010. The
>    †        
!  J   $       
of the Rajasthan State Town Planning Department,
with the experience of Strasbourg in heritage
conservation in the context of urban development. It
sought to highlight the mechanisms via which heritage
has served in promoting sustainable development
         (   
of this experience to Udaipur and other historic Aerial view of the cathedral. Source: F Zvardon, City and urban
cities of Rajasthan. Further, the inter-linkages in the community of Strasbourg
 Bridging the Gap: Historic Cities of India 37

Buffer zones of monuments on World Heritage List. Source: K Karli, SIG map, City and urban community of Strasbourg

of the territory that have served as the life lines for The urban and economic growth of Strasbourg was
the successive economic and cultural development of )  '  (          
Strasbourg and its territory. development, among which was the invention of the
printing press by Gutenberg in the second half of the
The outline of the Roman castrum (buildings or plots 15th century. Humanistic ideas of the 16th century and
of land reserved to or constructed for use as a military the Protestant Reformist movement that took root in
defensive position) of Argentorate is still visible in the Strasbourg contributed greatly in the development
street pattern in the Grande Ile, the present day heart of of educational institutions and charity associations,
the historic centre of Strasbourg. The town re-emerged as well as hospitals in Strasbourg. The University of
as Strateburgum, the borough of the streets, the capital Strasbourg, regrouping the many institutions of higher
of Alsace under the reign of the Franks. This royal town education established over the centuries, is today the
 '             ' largest in France.
became a wealthy commercial town called Strasbourg.
In 1648, following the Peace Treaty of Westphalia,
Strasbourg was declared a free town of the Germanic the Alsace region and its capital, Strasbourg, was
Holy Roman Empire in 1358 that led to further incorporated into France under the sovereignty of
        )=   the King Louis XIV. The establishment of the royal
power of the regular clergy. Between 1370 and 1541,    )      )=  @Žth
four town extensions took place, each epoch marked century, leading to a period of peace that led to a new
by constructions of buildings and public spaces that golden age for cultural and artistic development in
testify to the growing political, economic and social the 18th century. As the border town between France
development of the city. Each urban extension was and Germany, Strasbourg’s defence system was
made in relation to the governance of the waterways, a    '         
prelude to the present status of Strasbourg as the second    '     ~
most important port on the Rhine River and host city of The French Revolution at the end of the 18th century
the Central Commission for Navigation on the Rhine. led to the destruction of the towns numerous mansions
38 Bridging the Gap: Historic Cities of India

of the bourgeoisie and religious buildings of the

Church, including damages to the famed Cathedral
of Notre Dame1. The 19th century, however, again
brought about a new prosperity to the town, marked
by industrialisation and its characteristic industrial
buildings. A spectacular new layer of Strasbourg’s
built heritage was added when the region again
came under German rule from 1871 at the end of the
Franco-Prussian War and the Siege of Strasbourg.
Established as the capital of the new German empire,
the Reichsland, the German rulers decided to make
Strasbourg a showcase of its ambition. While the
war damaged historic monuments were primarily
reconstructed à l’identique (identical), a new capital Kleber square. Source: D Cassaz, City and urban community
was constructed surrounding the densely occupied of Strasbourg
Grande Ile, by extending the city perimeter by three
folds. Neustadt, the ‘new city’ with its grandiose properties that have been inscribed more recently.
avenues and public buildings surrounded by a new In particular, the adoption of the notion of cultural
defence system was built delimiting a territory of 15 landscapes in 1992 by the World Heritage Committee
kilometres in diameter to protect Strasbourg from embracing the interaction between humankind and its
the City of Kehl in present day Germany across natural environment had led to the concept of Historic
the Rhine River. This urban territory is the heart Urban Landscape adopted as a Recommendation by
of the trans-border Eurodistrict today, the joint UNESCO’s General Conference in 2011. A review of
German-French administrative entity established         *    
in 2005 and operational since 2010, covering an Heritage Periodic Reporting for Europe in 2004-2005
area of 2,445 square kilometres including towns, and the on-going second periodic report in 2013-2014,
villages, agricultural and industrial land of the Urban have enabled the updating of the interpretation of the
Community of Strasbourg on the French side and cultural values of the Grande Ile of Strasbourg in its
Ortenau District on the German side of the Rhine River. relation to the natural setting.

WORLD HERITAGE CONVENTION AND In response to the new requirement adopted by the
URBAN DEVELOPMENT World Heritage Committee in 2009 for the State
Parties to establish a buffer zone for each inscribed
The brief description of the World Heritage Grande property, the Government of France in collaboration
Ile of Strasbourg published by UNESCO notes the with the City of Strasbourg proposed a limited buffer
following: zone surrounding the 94 hectare area of the World
Surrounded by two arms of the River Ill, the Grande Ile Heritage Grande Ile of Strasbourg. Upon examination,
(Big Island) is the historic centre of the Alsatian capital. It the World Heritage Committee requested France to
has an outstanding complex of monuments within a fairly enlarge the buffer zone to ensure adequate protection
small area. The cathedral, the four ancient churches and of the property. The case of Strasbourg was deemed
the Palais Rohan, former residence of the prince-bishops, to have the potential of becoming an exemplary case
far from appearing as isolated monuments, form a district study for heritage and development. With any further
that is characteristic of a medieval town and illustrates extension of the buffer zone for the Grande Ile, entering
Strasbourg’s evolution from the 15th to the 18th century. into Neustadt, and given the importance of the cultural
value of Neustadt in its own right, it was considered
It was inscribed in 1988 on the basis of criteria (i), inappropriate to make the 19th century Neustadt into a
         )   mere buffer zone of the Grande Ile. Especially since
on the World Heritage List, rather than as a single Neustadt was inscribed for its Outstanding Universal
monumental property of great architectural value Value (OUV) as a testimony to the evolution of
that had hitherto characterised the World Heritage the town from the medieval to the 18th century that
properties in France. The declared attributes at the time encapsulates in its built heritage the religious, artistic,
of this urban site were nonetheless monument-oriented intellectual and economic and political interchange
in comparison to other values presented in urban between the Germanic and French world.
 Bridging the Gap: Historic Cities of India 39

Strasbourg in the context of European integration with

the European Parliament giving it political legitimacy.

WORLD HERITAGE CONVENTION AND

SUSTAINABLE URBAN DEVELOPMENT

Constituted by a multidisciplinary team of experts, the

   $))   )  '  J' 
guide the process of preparing the extension dossier for
the World Heritage Grande Ile – Neustadt of Strasbourg
and its management plan with the objective to valorise
the Franco-German ‘shared heritage’ of Strasbourg of
which Neustadt forms the 19th century addition. The
team set out to demonstrate in the WH site management
plan, that the protected area is functionally part of the
greater city and its territory; thus integrating housing,
commerce, social services as well as social and
educational infrastructure for the inhabitants; rather
than allowing its evolution as an ‘oasis’ of cultural
heritage, a fate of many historic centres in western
European countries.

224 buildings in Strasbourg, the majority in the Grande

Avenue of liberty, Kaiserwilhelmstrasse. Source: C Hamm, City Ile and Neustadt, are so far listed or registered as
and urban community of Strasbourg historic monuments and protected under the 1913 law
for the protection of monuments of ‘public interest’.
The ongoing process of reviewing the statement of In France, in addition to buildings ‘listed’, there are
value and establishing a management plan for all World those that are ‘registered’ for potential listing, thereby
Heritage sites in France gave the Mayor of Strasbourg enabling the national cultural authorities to have a
an opportunity to push for the extension of the World register of properties that the owners and local bodies
Heritage area to include the imperial city of Neustadt in participate in protecting and conserving. The ongoing
the core area and to safeguard the rest of Neustadt as a process of establishing an inventory of Strasbourg is
‘support zone’, a notion more appropriate than ‘buffer expected to increase the number of both listed and
zone’. The inclusion of Neustadt in the World Heritage registered buildings after evaluation by the National
perimeters of Strasbourg would establish the historic Commission of Historic Monuments that is a statutory
and cultural foundation of Eurodistrict, the French- body under the authority of the Minister of Culture.
German transnational entity, alternately presided by the
Mayors of Kehl and Strasbourg since 2010. This law is complemented by the 1930 law on the
protection of sites3, the 1941 law on archaeological
For the Mayor of Strasbourg, whose urban strategy excavations, the 1943 law on the protection of
focuses on the development of the city towards the areas surrounding monuments4, and the1962 law
Rhine River World Heritage recognition of Grande on safeguarded urban area or heritage conservation
Ile-Neustadt of Strasbourg would give a strong historic, precincts puts almost all of the Grande Ile and Neustadt
cultural and economic foundation to his Deux Rives or under heritage protection. The 1962 Malraux Law,
Two Banks development strategy. The construction of named after the famous writer and then Minister of
the Passerelle des Deux Rives, a footbridge connecting Culture, Andre Malraux, was designed to combine
the French and German side of the Rhine Riverbank, heritage law to urbanism law. It introduced a broader
symbolises the historic links between the people on legislative support for urban conservation areas by
both sides, fused in Franco-German culture, the basis of           
Eurodistrict. The aim is not only to physically connect renovation of all buildings-listed, registered or not,
the two river banks through better transport system, but located within the protected area. The safeguarded
but to enhance commerce and investment opportunities areas are regulated by the Plan for Safeguarding and
between the two countries and a strengthened role of Valorisation (PSMV) and placed under the technical
40 Bridging the Gap: Historic Cities of India

supervision of the Architecte des Batiments de France impact negatively on all categories of heritage and the
(ABF), a corporation of architect-urbanists of the beauty of the landscape.
Ministry of Culture who are attached to the regional
culture department with competence also covering In the case of the City of Strasbourg, only the southern
protected areas in cities. half of the Grande Ile is protected as a safeguarded
area under the PSMV, but given the designation of the
To ensure further protection of architectural, urban and entire Grande Ile as a World Heritage site, a process
landscape heritage, France also developed a tool called was initiated in 2012 to revise the PSMV to cover the
the Zone de Protection du Patrimoine Architectural, extension area. Rather than to opt for the establishment
Urbain et Paysager (ZPPAUP) in 1993, which also of an AVAP area, the decision to place this area under
delimits a protection area, but controlled by the local the PSMV demonstrates the importance attached by the
authorities under the supervision of the ABF. The Mayor for national as well as international recognition
ZPPAUP has since 2010 been replaced by Area for the of Strasbourg’s ‘shared heritage’. Although the long
Valorisation of Architectural Heritage (AVAP), a new process in completing the inventory and heritage
legal tool that still allows the supervision of the ABF, )        ƒJ~    '
but less than under the ZPPAUP. adopted until 2016, strict heritage protection building
regulations under the PLU will already permit the
This change in the role of the ABF, a central submission of the World Heritage extension request to
)          UNESCO in 2014 for decision by the World Heritage
framework of the decentralisation law and resulted Committee in 2015.
from a hot debate between groups of local authorities
keen to partner with property developers and the ‘pro- To ensure the ‘functional integrity’ of the Grande Ile
heritage’ groups including many mayors of historic and Neustadt, as cities that they always were, and now
cities. The Plan Local d’Urbanisme (PLU) also has a part of the bigger city that Strasbourg has become, the
heritage level enabling building control over areas of municipal authorities have placed great importance to
architectural and landscape interest although controlled housing, commerce, mobility, social services for the
only by the local authorities. Through these legal and       )        
planning instruments, heritage is a crucial dimension in as an oasis of rich monumental and urban heritage.
the spatial development of all cities in France. Housing, urban mobility and parking have been major
concerns in the high density of the Grande Ile, with
Moreover, territories outside urban areas are also its narrow streets and medieval urban areas. However,
under heritage surveillance, as the strategic planning with the introduction of mass transport systems,
document called the Scheme for Coherent Territory automobile access to the Grande Ile was gradually
(SCOT) which is prepared before the PLU, include limited. The reintroduction of the tramway in 1994 and
control over the use of ecologically vital land as well as its extension in 2000, going from East to West in the
              North of the Grande Ile and going from South to North
assets. The SCOT also addresses visual landscape to through the Grand Percee made the Grande Ile the main
ensure that the further urbanisation of territory do not connection node, thus enabling more measures to limit
 (              
use of public transport, intermodal nodes for transport
that bring together the tram, rail, bus and bicycle rental
stations have been established in a growing number of
locations in the city. The full or partial pedestrianisation
of the centre, while hotly contested in the beginning
by the shop-keepers and inhabitants have proven to
be a great success in attracting more business to the
area, not only for the tourists and inhabitants but also,
of those who work in the centre to shop over lunch
break and after work. The vast improvement and
attractiveness of public space through eliminating or
        =    
also reducing atmospheric and noise pollution, have
Neubau. Source: C Hamm, City and urban community of
Strasbourg             
 Bridging the Gap: Historic Cities of India 41

To prevent the historic centre from being deserted realised in the city, especially towards the Rhine River.
by residents, the city authorities have had to control Although the new building blocks are not located in the
late-night commerce of clubs and restaurants in some Grande Ile or Neustadt, the architectural design takes
areas to ensure tranquillity for the residents and to into concern the height limits to ensure that they do
maintain the so called ‘proximity commerce’ and socio- not impact negatively on the historic urban landscape.
educational facilities considered as the key to keep The fact that many new real estate projects are being
residents in the Grande Ile. realised under Public Private Partnership schemes of
different types, on government imposed principles of
Housing opportunities in the monumental heritage mixed use and mixed tenure of owners have created
part of the Grande Ile are relatively limited and opportunities for project driven consultations between
characterised by nearly 40% being of units of less than the public and private sectors and the citizens to shape
’] † )       '    the future of their city.
to shops and boutique show-windows taking over the
building entrance space on the street. This has also CITY TO CITY COOPERATION:
contributed to some ten percent of housing units being STRASBOURG AND UDAIPUR
      (       
Since 2010, the municipal authorities have imposed The formation of IHCN-F in 2006 initiated the
a tax for vacant accommodations as a means to incite selection of Udaipur as a case study and model
owners to carry out the works necessary for occupancy. for heritage based development. As a result, there
Close to 69% of the buildings in the Grande Ile date were interactions between City of Strasbourg and
from before 1949 and are considered to require more Udaipur. A workshop on ‘Planning Tools for Heritage
care for maintenance than the new buildings although Conservation’ was organised at Amber Fort, Jaipur, in
the cost is not necessarily higher than in larger modern January 2011, with participation from the Mayor and
buildings that have full-time maintenance personnel experts from Strasbourg. Further, a formal cooperation
  ) “’”         agreement was signed between Udaipur Municipal
occupied by tenants with about half being students Council, City of Strasbourg, IHCN Foundation and
staying for less than two years, rather than by owner- Maharana Mewar Charitable Foundation, in October
occupants. However, despite the average household 2011. The objective was to develop a heritage based
size only being 1.53 persons, the average household urban development plan of Udaipur and to establish an
income of the inhabitants of the Grande Ile is almost Udaipur Heritage House.
50% higher than in the rest of Strasbourg, pointing to
           Q As a part of this three year cooperation programme,
Ile. Renovation of historic buildings in the Grande a workshop on ‘Integrating Heritage Resources
Ile for social housing for low-income families which in the Master Plan of Udaipur’ was organised in
had given impetus to the urban renewal process in the March 2012 in Udaipur. Through the workshop, it
1960s and 70s have not been continued in the Grande            )
Ile despite remaining needs since public funds available to structure the urban development strategy and to
for social housing have mainly been used to build mass adjust the planning documents of Udaipur, such as the
housing blocks in other parts of the city to meet large Master Plan. The considerations during the Workshop
demand that the historic centre cannot satisfy. included a territorial understanding and analysis of
 !  J  ƒ}  =    
Supported by funds made available from the central the central element of the natural heritage system of
government under the Solidarity and Urban Renewal Udaipur and development of ideas towards setting
Act of 2000, social housing building complexes built up of the ‘Heritage House’ and establishing a heritage
in the 1970s, with many social problems are now information system.
being renewed with the idea of promoting mixed-use
with not only housing but commerce and work place Another workshop on ‘Heritage-based Urban and
to avoid concentration of the low-income population. Territorial Development Strategy of Udaipur’ was held
Under the current tenure of the Mayor5, who has made from February 3 to 15, 2013 in Udaipur. The focus was
            on integration of values of natural and built heritage
priority programmes, some 3,000 new housing units in the Master Plan for 2031 and framing of Zonal Plan
per year, of which a third are social housing and the and schemes. The strategies and proposals formulated
+ Z †      Y    during the Workshop dealt with issues that the city
42 Bridging the Gap: Historic Cities of India

Exhibition panel produced in the course of Workshop in Udaipur on Heritage Based Sustainable and Territorial Development
 Bridging the Gap: Historic Cities of India 43

is facing in a holistic manner such as transport and community concern and participation often animated
mobility, urban sprawl, housing for the urban poor and by local democracy neighbourhood committees that the
loss of heritage values and these were disseminated current Mayor of Strasbourg has nurtured. Valorisation
through an exhibition. of the Franco-Germanic shared heritage resulting
)         ( 
A set of urban planning expert meetings were also will hopefully serve in instilling greater tolerance
organised in February 2013, during which experts        (   +
exchanged ideas on different scales of planning in existence and fusion, to build a collective future open
France and India, the inter relations of urban planning to the world. These new dynamics that cultural heritage
tools such as Master Plan and Zonal Plan, schemes and environment protection have generated in shaping
such as ‘Affordable Housing Scheme’ and local the future of Strasbourg offers lessons useful for all
building byelaws. Several examples were analysed countries, whether rich or poor.
 ))   *      ) 
heritage based development, as per the present threats The vocation of UNESCO and IHCN-F is to continue
of the growing population and expansion of the city. *     *      
local solutions through participative democracy
CONCLUSION where knowledge and tolerance becomes the driving
force for development. The initiatives undertaken
Heritage protection obligations in Strasbourg, long as a part of the city to city cooperation between
considered a burden have forced the municipal Strasbourg and Udaipur are a part of this exchange and
authorities to adopt innovative urban development demonstrate how effective such collaborations can be
strategies. Starting from addressing the challenge of in understanding and solving issues by learning from
urban mobility and transport, emerged the idea and experiences in other parts of the world. The focus on
realisation of a people oriented city, a city of high integration of heritage based development in planning
density mixed-use quarters with attractive public instruments and frameworks such as the master plans
spaces and urban parks, connected by mass public is an important takeaway for effective implementation.
transport within and beyond to the other towns, villages Successful models from other parts of the world that
and nature reserves of the Urban Community and the foster such an integration, resulting in heritage based
transnational Euro-district. Public consultations on ) )=   '   
heritage preservation and contemporary architectural          )  
realisations, have given rise to pedagogical debates, UNESCO and IHCN-F started with.

Bibliographic references City & Urban Community of Strasbourg croisees, Thesis, unpublished, Strasbourg.
x Agency for Urban Development of 2013, Strasbourg, Grande-Ile: Diagnostic x Government of Rajasthan, City of
Strasbourg 1998 Paysageurbains du Prealable à al realisation du Plan de Strasbourg, IHCN-F, French Embassy in
20e siècle, memoire et modernitesd’une Gestion , UNESCO World Heritage Centre, India, ENSAS, ANVPAH,& MMCF 2013,
agglomeration: Strasbourg-Kehl 1900-2000, Paris. Strategy for heritage based sustainable
Nouveaux Loisirs, x Culture Directorate, Heritage Mission & City urban and territorial development of
x Agency for Urban Development of & Urban Community of Strasbourg 2013, Udaipur, Government of Rajasthan, Udaipur.
Strasbourg 2010, Premiers element pour Candidature au label Ville d’Artetd’Histoire, x Gustin, D 2011, Heritage in the heart of
comprendre la silhouette urbaine,,Agency UNESCO World Heritage Centre, Paris. urban development: Strasbourg case
for Urban Development of Strasbourg, x Directorate for Urbanism, Architecture study, Thesis, unpublished, Master of
Strasbourg. & Housing, Urban Community of Conservationa of Monuments and Sites,
x Culture Directorate, Heritage Mission & City Strasbourg 2011, Revision- extension Raymond Lemaire International Centre for
& Urban Community of Strasbourg 2013, du PSMV-commission nationale des Conservation (RLICC/ KU Leuven), Leuven.
Strasbourg, Grande-Ile: Management Plan secteurssauvegardes, Strasbourg. x Urban Community of Strasbourg 2010,
draft, UNESCO World Heritage Centre, x Eberhardt, S 2010, Projet de these, La Schema directeur des transports collect ifs
Paris. Neustadt de Strasbourg: la construction 2010-2025, Strasbourg.
x Culture Directorate, Heritage Mission &  !    " # 
44 Bridging the Gap: Historic Cities of India

Cultural Landscapes and

Cultural Routes
X[\\]^     &     &    '  `  ^&   
@        &  {             ^
cultural itineraries and cultural landscapes.” (p. 13, Final report of the Audit of
the Global Strategy and the PACT initiative, WHC-11/18.GA/INF.8, 2011)

This section is a brief glimpse of the diverse Indian cultural landscapes

and the rich resources of cultural routes such as the Grand Trunk Road
besides the well recognised Silk Route and Maritime Trade (Spice) Route
that traversed through historic Indian towns.

Source: Pranjal Rai

 Cultural Landscapes and Cultural Routes 45

Cultural Landscapes in India

$1$1'.$1,7.$5

ABSTRACT

Since its inclusion as the fourth category under the World Heritage
Convention, the term Cultural Landscape is now widely used all over the
World. Cultural landscapes are the combined work of nature and mankind
where the natural elements play vital role in shaping the socio-economic
structure of cultural landscape. In India, monuments have received great
                
preserve cultural landscapes in India, as they contain natural heritage
and built heritage along with intangible heritage that creates cultural
landscapes. The term cultural landscape and its sub-categories need to be
understood in the Indian context.

INTRODUCTION

Since the very beginning of civilisation, man has tried to leave a mark of
his personal and societal existence on Earth. In doing so, he has tried to
Anand Kanitkar is currently working at UNESCO document his daily life as well as all that he held in high esteem. Such
New Delhi. He has obtained a joint degree creations, whether they are buildings, monuments or sites have been
of ‘Master of Cultural Landscapes’ from Jean distinct and unique for each society. Though each community has tried to
Monnet University, France; University of protect this heritage for centuries, what makes the 20th century different
Stuttgart, Germany and University Frederico II from the rest is that there is a global attempt to collectively protect these
of Naples, Italy. masterpieces as invaluable assets for the current and future generations.
46 Cultural Landscapes and Cultural Routes

bridge the gap between the two. In 1985, a task force

was established by UNESCO to tackle the question
     Z)  )    
environment and in certain instances had created
ecologically balanced, aesthetically beautiful and
culturally interesting landscapes’ (UNESCO 1985).

Thus, the ‘Note on the Rural Landscapes and the World

Heritage Convention,’ of the 11th session of World
Heritage Committee, Paris, December 7 to 11, 1987,
discussed the natural and cultural aspects of a property,
its OUV and the role of The International Council on
Monuments and Sites (ICOMOS) and International
Union for Conservation of Nature (IUCN) in evaluating
the nomination of landscapes. A decision to create a
new category called the ‘mixed’ cultural and natural
properties was taken and included under the World
Heritage Convention. Till date 29 properties have been
listed as ‘mixed’ properties containing both natural and
cultural elements.

The term ‘cultural landscape’ was promoted by

Prof. Carl Sauer in the United States in the 1920s. It
came in wider usage after its adoption by the World
Heritage Committee in 1992. Sauer (1925, p. 46)
     ‰ Z   
landscape is fashioned from a natural landscape by a
Rock Shelters of Bhimbetka, the only property from India listed culture group. Culture is the agent, the natural area the
as a cultural landscape. Source: ASI, Bhopal Circle
medium and the cultural landscape the result’.
     *      
a World Heritage List wherein properties having an Thus, a cultural landscape is formed not only from
%    !  ~ %!~     what a property ‘looks’ like but also from what it comes
an aim to work towards their protection, conservation, to ‘mean’ to a certain community. It, therefore, clearly
presentation and transmission to future generations. manifests that in order for a property to be a cultural
These properties have been categorised within the landscape, the said property needs to hold meaning not
natural, cultural or mixed category and recently, only for visual perception but also for intellectual and
a fourth category, namely, cultural landscapes has emotional senses. A cultural landscape must present
been added. Through different texts provided by the itself as a proof of human history of a certain place and
international organisations, the Convention Concerning its population, since it is only through this symbiosis of
the Protection of World Cultural and Natural Heritage nature and man that a true cultural landscape is shaped.
was adopted by the General Conference of UNESCO
from October 17, 1972 to November 21, 1972. The Operational Guidelines for the Implementation
   ?   $    
The World Heritage Convention came into existence landscapes as follows:
 @ŠŽF       ' \]    ƒ   Cultural landscapes are cultural properties and represent
  @ŠŽ“    @\  ?     the “combined works of nature and of man” designated
     /         in Article 1of the Convention. They are illustrative of
be nominated were included under either of the two the evolution of human society and settlement over time,
categories, namely, ‘cultural’ or ‘natural’. This practice   (    '      —
continued even in the 1980s. However, researchers felt opportunities presented by their natural environment and
that certain properties presented elements of both types of successive social, economic and cultural forces, both
of categories and thus a new category was needed to external and internal.
 Cultural Landscapes and Cultural Routes 47

CULTURAL LANDSCAPE CATEGORIES element rather than material cultural evidence, that may
            
By the 1990s, the category of ‘cultural landscape’ was landscapes are more applicable to non-European
widely accepted within the world heritage community contexts and are replete with important indigenous
and the term began to be used by people working in              
        ) )     associative cultural landscapes such as the Uluru-Kata-
thinking and practice. This resulted in the adoption of Tjutaa National Park, Australia and Tongariro National
three categories by UNESCO in 1992. Park, New Zealand were non-European.

Designed and created intentionally by man It is important for the purpose of our study to
This includes garden and parkland landscapes understand the difference between mixed properties
constructed for aesthetic reasons which are often, and cultural landscapes. Mixed properties and cultural
but not always, associated with religious or other landscapes are two different concepts in the World
monumental buildings and ensembles. These organically Heritage scenario. Mixed properties are inscribed
evolved continuing landscapes are mainly seen in under both cultural and natural criteria. They need to
the European region. These include wine regions, manifest at least one of the cultural criteria (i to vi) and
river basins, seaside settlements, etc. Such is the at least one of the natural criteria (vii to x) because they
case of the Aranjuez Cultural Landscape, Spain, but meet both criteria independently. On the other hand,
examples of such landscapes can also be found in the OUV of cultural landscapes arises not from their
ancient settlements of Asia, for instance, Vat Phou and cultural or natural values assessed independently but
Associated Ancient Settlements within the Champasak from the close inter-relationship between culture and
Cultural Landscape, Lao People’s Democratic Republic. nature. Cultural landscapes are assessed only under the
cultural criteria, that is, criteria from (i) to (vi). These
Organically evolved landscapes properties also manifest natural values but these cannot
This results from an initial administrative, economic,  >         
social and religious imperative and has developed its
present form by association with and in response to A cultural landscape in unique nature is derived
    )    (  through the ingenious use of natural elements, which
very process of evolution in their form and component       )   ) ) 
features. Evolving cultural landscapes can tell us more economic and social structure. Therefore in a cultural
about human history and the relationship between landscape natural elements play an important role,
people and nature. Such landscapes fall into two not only for their intrinsic exceptional value but more
subcategories: especially because of the use made of these elements
x Relict (or fossil) landscapes: in which an evolutionary to develop a socio-economic structure. These natural
process came to an end at some time in the past, either elements thus form a core for the creation of the
 '                 cultural landscape. One of the striking examples of this
features are, however, still visible in material form. are the Agave Plantations of Mexico that have been
An example of this is St. Kilda in UK. used for centuries and whose plantation forms the base
x Continuing landscapes: that retain an active social for an economy and a society developed around the
role in contemporary society closely associated production of tequilafrom the agave plants.
with the traditional way of life and in which the
evolutionary process is still in progress. This $   ( )   '  
  ) '  *      imbued with cultural values. They combine elements of
material evidence of its evolution over time. For space and time, and represent political as well as social
instance, the Alto Douro Wine Region, Portugal; and cultural constructs. As they have evolved over
Upper Middle Rhine Valley, Germany; Costiera time, and as human activity has changed, they have
)   '      ƒ    acquired many layers of meaning that can be analysed
Cordilleras, Philippines. through archaeological, geographical, historical and
sociological studies.
Associative cultural landscape
The inscription of such landscapes on the World Another important feature of cultural landscapes is
?   /   >  '       that these natural elements further serve as inspirations
artistic, cultural or religious associations of the natural for intellectual and artistic creations. So it would not
48 Cultural Landscapes and Cultural Routes

Rock Shelters of
Bhimbetka show a
wealth of rock paintings
demonstrating continuity
of habitation through
ages. Source: ASI,
Bhopal Circle

be wrong to say that often in the case of a cultural '         )  )
landscape, the presence and the disposition of these on shrines and houses of the surrounding villages. The
natural elements paves the way for the evolution of the Bhimbetka landscape thus bears testimony to a cultural
given society. tradition closely linked to the presence of the caves.

IDENTITY IN INDIAN CONTEXT In India, traditional societies have used nature and
natural resources around them to eke out sustainable
Out of 82 properties inscribed as cultural landscapes on livelihoods, ensuring that they resort to only small-
the World Heritage List, Rock Shelters of Bhimbetka scale interventions within the environment surrounding
is the only property from India listed as a cultural them. In this process, ethnic groups have sculptured
landscape. The Bhimbetka site complex shows wealth a ‘cultural landscape’ by viewing themselves as part
of rock paintings on natural rock shelters. Together, of an integrated socio-ecological system. In view of
the paintings and archaeological evidence shows this cultural context, India offers various examples
habitation and lithic1 industry from the Palaeolithic of all three types of cultural landscapes apart from
and Mesolithic periods, through the Chalcolithic to the Rock Shelters of Bhimbetka, which have already
the medieval period. The richness and variety of the been inscribed in the World Heritage List of Cultural
large concentrations of paintings within a site that Landscapes. Following are a few examples of probable
demonstrates a progressive sequential use throughout cultural landscapes in India:
the ages, remains unparalleled.
Intentionally designed landscape
While the contents of the shelters have revealed a J  Q  ˆ )     
continuity of habitation, cultural elements of this are category of cultural landscapes which is an
also observed in the continuing traditional lifestyle of intentionally designed landscape. Mughal Gardens
the adivasi (tribal) villages in the surrounding buffer of Kashmir are on the tentative list of India for
zone. To this day, these settlements manage to maintain World Heritage status. Almost all Mughal gardens
a delicate ecological balance with the surrounding in Kashmir except Verinag follow a similar pattern
forests, which have been a key resource for the with a central water channel of a natural spring. This
inhabitants associated with the rock shelters over the channel forms the central visual axis of the garden
past 100,000 years. and has poplar or chinar (plane tree) avenues. There
are one or more pavilions with a central open space
Bhimbetka shows the interaction of human beings with placed over these water channels. These water channels
the landscape around them over a long period. The rock run down from one terrace to another in the form
art at Bhimbetka exhibits hunting-gathering traditions of chadars (sheets) or falls. At the end, the water
and the tradition of painting symbols and pictures. Even from these channels ejects into a water body, either
 Cultural Landscapes and Cultural Routes 49

 (   ) '   =   )   suburban area form part of the Great Buddhist
pattern of chaharbagh (quadrilateral garden divided J '  *   )   ' „$  @@th
into four equal parts by walkways) and its terraces century AD. These bulbous hills of volcanic origin
have been adapted to the contours of the mountainside take their name Kanheri from ancient ‘Krishnagiri’ or
thus enhancing the natural landscape and making the ‘Kanhagiri’ meaning black mountain.
J          
traditional Islamic gardens. Extraordinarily evocative, this awe-inspiring forest
landscape consists of three hills of volcanic rock with
These terraced gardens are historical landscapes around 110 Buddhist caves bearing extraordinary
and offer a mesmerising view of the lake and the testament to the Buddhist rituals and traditions which
mountains. They bear testimony to the ingenious work once abounded in this area. These caves are the
of our ancestors, who chose its setting, designed the pages on which a 2,000 year old strange and eloquent
complex terraced layout and the play of water cascades chronicle of human history has been written. Simple yet
along with its ecology and the view it offers. They extraordinary, these rock-cut caves illustrate the ancient
            relationship between humans and their environment.
designed cultural landscapes of India.
Kanheri is credited with the largest number of cave
Organically evolved cultural landscape excavations on a single hill. The great monastery of
India with its vast cultural history has many organically ˆ      (    ( 
evolved landscapes. One of the important landscapes in environmental changes on human culture. The Buddhist
India is the Kuttanad landscape from Kerala. Kuttanad monks chose this site as their vassavasa or dwelling
is a delta region of about 900 square kilometres situated during the rainy seasons.
in the West coast of Kerala. The area comprises of
fragmented landscape patches and varied ecosystems The study of caves at Kanheri Hills shows the ancient
such as coastal backwaters, rivers, vast stretches of traditional knowledge of geology, hydrology and
'  )       landscaping. Landscape plays an important part in the
corridors and remarkably networked water-ways. planning of the monastery. The excavation of caves
depended on the geology of the hill. Various parts
Farmers of Kuttanad have developed and mastered the of the monastery such as the viharas (monastery),
technique of below sea level cultivation over 150 year chaityas (shrine), benches, water tanks and bathing
ago. It is unique, as it is the only system in India that tanks have been established in this rocky landscape.
practices rice cultivation below sea level. It has been Another notable feature is the presence of a cemetery
fashioned on about 50,000 hectares, most of which located under the natural cavern. Here, 64 stone
  )   )        built and brick structural stupas (mound-like or
are popularly known as puncha vayals exist in three hemispherical structure containing Buddhist relics) are
landscape elements: karapadam     found erected on the charred remains of distinguished
kayal       kari (land reclaimed monks. The site chosen for the cemetery is an isolated
from water body).     (       
been excavated here to meditate while observing the
The farmers made this system unique as it contributes landscape and the stupas.
remarkably well to the conservation of biodiversity
and ecosystem services including several livelihood It is clearly evident that Buddhist monks in the great
services for local communities. This landscape shows Monastery at Kanheri Hills were living a life in sync
an interaction of man with nature that results in the with nature. Their activities practiced by them for
development of a new culture around it, and thus it over a millennium have shaped the cultural landscape
is an important example of an organically evolved of the Kanheri Hills. The remains of this interaction
cultural landscape in India. with nature in the form of caves, stupas, inscriptions,
water management systems and benches tell the story
Relict cultural landscape of an important phase not only in Indian Buddhism
Kanheri caves which are one of the important caves but in Buddhism as a whole. These practices show that
sites in India are situated within the Sanjay Gandhi the Kanheri site is a landscape that evolved as per the
National Park in Borivli, Maharashtra. The Kanheri demands of the Buddhist religion but that during this
Hills situated on the Salsette Island, in Mumbai transformation a symbiotic relationship between human
50 Cultural Landscapes and Cultural Routes

practices and nature’s equilibrium was maintained. will result in the natural calamity for Sikkim. This
However, after the 12th century there is no trace of vast cultural landscape of Khangchendzonga shows
habitation by Buddhist monks and the use of the religious associations of the community, hence making
monastery progressively stopped and use of the water it a prominent associative cultural landscape in India.
management system reduced. Therefore, currently the
site is an organically evolved relict landscape. Another example of associative cultural landscape for
Indians but which does not appear within the political
Associative cultural landscape boundaries of India is Mount Kailash. No explanation
Ever since Vedic2 times, sacredness in the Indian is needed for its association with the Indian belief
context is associated with forces of nature such as system as the abode of Lord Shiva and its mention in
            various religious texts. India also has other associative
            cultural landscapes such as the Nandadevi Peak or the
          =    Agastyamalai Mountain, which are Natural Heritage
places, India is a hub for associated cultural landscapes. sites but could also be considered as associative cultural
landscapes. Cultural landscapes of Khangchendzonga
Mount Kanchendzonga, the second tallest speak, next or Mount Kailash could be stronger cases as associative
only to Mount Everest in the Himalaya, is deeply cultural landscapes for World Heritage Status.
venerated by the habitants of Sikkim. This peak and
the land below are believed to have been blessed by CONCLUSION
Guru Padmasambhava, an incarnate of Buddha. Based
on this belief, the Yoksum area located in West Sikkim It is therefore evident that India has a whole array of
and known as ‘Demojong’ for the Tibetan Buddhists different categories of cultural landscapes to offer. In
is seen to be sacred as well. Believed to have a large India, there is an urgent need to change the general
number of hidden treasures of spiritual value embedded approach towards heritage, which comprises not only
within the land and water bodies, to be slowly revealed of monuments, but includes cultural landscapes, since
at appropriate times only, this entire landscape is to be they consist of natural sites, monuments and towns.
conserved with minimal human disturbance. They offer valuable lessons in traditional landscaping
techniques and the way in which landscapes were
The Demojong Cultural Landscape of Sikkim with created. The recognition of cultural landscapes as
the sacred land, river, lakes, caves of the Yoksum potential World Heritage from India will go a long way
region are not to be severely altered in any manner in better management, biodiversity conservation and
and therefore has been preserved for many years. It is linked sustainable development of the communities
believed that a largescale alteration of the landscape dependent on these cultural landscapes.

Bibliographic references unesco.org/archive/1987/sc-87-conf005- of stone. The earliest stone tools were

* Sauer 1963, ‘The Morphology of inf4e.pdf>. recovered from modern Ethiopia and were
Landscape’, in J Leighly (ed.), Land and * UNESCO 2011, Operational Guidelines for dated to between two-million and three-
Life, University of California Press, Berkeley. the Implementation of the World Heritage million years old. The archaeological record
* Stuart CMV 1913, Gardens of the Great Convention, World Heritage Centre, Paris, of lithic technology is divided into three
Mughals, Adam and Charles Black, London. viewed November 2013, <http://whc. major time periods: the Paleolithic (Old
* UNESCO 1972, Convention concerning unesco.org/archive/opguide11-en.pdf>. Stone Age), Mesolithic (Middle Stone Age),
the Protection of the World Cultural and * Wangchuk, P & Zulca, M 2007, and Neolithic (New Stone Age).
2
Natural Heritage, World Heritage Centre, Khangchendzonga: Sacred Summit, Hillside The Vedic period or Vedic age was a period
Paris, viewed November, 2013, <http://whc. Press Pvt. Ltd., Kathmandu. in history during which the Vedas, the oldest
unesco.org/archive/convention-en.pdf>. scriptures of Hinduism, were composed.
* UNESCO 1987, Note on the rural Notes
1
landscapes and the world heritage In archaeology, lithic technology refers to
convention, World Heritage Centre, Paris, a broad array of techniques and styles to
viewed November 2013, <http://whc. produce usable tools from various types
 Cultural Landscapes and Cultural Routes 51

The Pulsating Grand Trunk

Road of Punjab
Connecting memories of civilisations
*850((765$,$1'5,'+,0$%$-$-

ABSTRACT

Gurmeet S Rai is currently a lead consultant /  < = >  ""     
for the development of the Cultural Policy and has played an important role in shaping the history of India and
for the State of Punjab, in collaboration with particularly, Punjab. It has been a source of attention and fascination
UNESCO. She set up the Cultural Resource for most of recorded history in India. Its story echoes the grandeur of the
Conservation Initiative (CRCI), a consultancy emperors across whose lands it lay like a ceremonial ribbon; the emblem
   @=   [\\|Q {  } of their expansive holdings and the symbol of royal power. The most
vast experience in conservation and heritage extant segment of the Grand Trunk Road, known as National Highway 1
management, the World Monuments Fund, New (NH 1), along with relics of the great serais, wells and infrastructure lies
York, appointed her as the project management in Punjab, hence it is a living example of the many layered palimpsest of
consultant for scoping and coordinating cultures and rulers. The assets and possessions along this cultural route
conservation of 43 protected monuments in are in the form of built, natural, intangible and documentary heritage. It
Madhya Pradesh. is important to ensure that any interventions for conservation, protection
   "      
Ridhima Bajaj is currently working with CRCI, as an integral part of the development framework for the region.
New Delhi on the tourism management plan
and world heritage nomination for the Grand INTRODUCTION
Trunk Road. She has been associated with
several conservation projects at Lucknow, Since time immemorial, road(s) as an inorganic identity have been one
Mumbai and Punjab.        ) )  )   *   
52 Cultural Landscapes and Cultural Routes

the world. Human prowess exercised in tandem with Ludhiana, Jalandhar and Amritsar to Lahore, whereas
ecological factors has given rise to formalised roads the Badshahi Sadak or Imperial Highway bifurcates
for communication. While a symbiotic relationship from Phillaur, across the river Sutlej and meets the
has historically prevailed between ecology and its NH1 at the Indo-Pakistan border. This segment of
surrounding culture, roads stand as symbolic structures the Grand Trunk Road and Mughal period Imperial
of this connectedness, as several roads have not only ? '  ƒ>   ))     
facilitated but also promoted a synthesis of multiple as it was among other aspects, the connector between
cultural traditions (Keesing 1974). the capital cities of the Mughal Empire for over 300
years, connecting Lahore, Delhi and Agra. The location
The present Grand Trunk Road, in the Indian of the road, through the alluvial plains of the river
subcontinent has been a dynamic site for the fusion of Indus and its tributaries, serving as the passage over
indigenous and foreign social, political, economic and land into India can be said to be the primary reason
cultural practices. It is the movement of people and for its layered history. While the area of movement
 (   (  =     remained the same, the alignment of the road changed
region that has led to the creation of its cultural identity. over time, responding to the dynamic socio-political
The 271 kilometres of the Grand Trunk Road in present and economic conditions of the land.
day Punjab, begin from near the town of Ambala via

Map showing various layers of the routes and its transformation. The inset map shows the extents of The Grand Trunk Road and the
historic settlements along the route in the state of Punjab
 Cultural Landscapes and Cultural Routes 53

The Grand Trunk Road remains a continuum reigns of Akbar1 and Jehangir2 (CRCI 2012). Jehangir
that covers a distance of over 2,500 kilometres. contributed in construction and repair of bridges, baolis
From its origin at Sonargaon in the Narayanganj (stepwells) and tanks. Further, Shah Jahan is known for
district of central Bangladesh, it traverses the construction and embellishment of royal structures
India through Kolkata, Bardhaman, Durgapur, along the route. The bridge of Shah Daula on Nullah
Aurangabad, Varanasi, Kanpur, Allahabad, Deg on the way from Lahore to Eminabad is attributed
Aligarh, Delhi, Karnal, Ambala, Ludhiana, Jalandhar to Shah Jahan’s period.
and Amritsar. Within India, the major stretch between
Kanpur and Kolkata is known as National Highway The 18th century saw the emergence of regional powers;
2 (NH 2), the stretch between Kanpur and Delhi is   = =  )          
called National Highway 91 (NH 91) and that between Phulkian states on the land to the East of Sutlej. The
Delhi and village Atari at the Indo-Pakistan border, is amenities provided by the Mughals reduced with the
known as NH 1. fragmented administration. The East India Company
came to take control of India, rising from Calcutta,
Within Pakistan, the Grand Trunk Road continues with the Battle of Plassey in 1757 to fall of the Sikh
north through Lahore to Gujranwala, Gujarat, Jhelum, Kingdom in 1849. In less than a century the East India
Rawalpindi, Attock District and Nowshera, before it Company straddled the Subcontinent as they moved up
'   ƒ  Q = \]@_ North on this most important road of India.

ARCHITECTURE AS LAYERS OF TIME British administrators did not pay serious attention to
the maintenance of roads until 1839 AD when it was
The buildings and the settlements along this cultural decided to connect Calcutta with Delhi by means of a
route are a manifestation of the evolving and innovative good metalled road suitable for wheeled vehicles and
   ( ) $      provided with bridges over small streams and ferries
to form unique regional architectural styles. These over larger rivers (Priestly & Hebbert 1908, p. 402).
(           
of material, construction methods and techniques and   ƒ  = & ) Y   ) 
decorative embellishments. the work done on the Grand Trunk Road in Punjab.
The stretch between Ambala and Karnal was one with
The Grand Trunk Road had a few forerunners, in               
the form of roads that were constructed during the was opened in 1856 and was seen as a reason for the
Mauryan and Kushan periods to connect Taxila, success of the British against the mutineers in Delhi.
Peshawar and Gandhara to Pataliputra, modern day
Patna in India. Major impact on the development in     ƒ>    ' )  
Punjab region came with Sur rule. It was Sher Shah 1857. The strategic interventions by the British in the
Suri who is said to have revived the glory of the region of Punjab were by way of building a network
royal road of the Mauryan Empire. Across the 3,200 of canals and the network of railways and roads. The
kilometre stretch from Ganges to Indus, he constructed Grand Trunk Road was realigned to directly connect
a highway bordered with fruit trees that afforded shelter Lahore with Amritsar. A new road was built between
in the form of serais (inns) to weary travellers (Latif Phillaur to Lahore via Amritsar. Taking advantage
1997). Thus, not only did the route connect important of the improved connectivity the Phulkian states of
historical landmarks and trade centres, but also Patiala, Nabha and Kapurthala built industrial towns
added to the landscape of Punjab a new typology of on the Grand Trunk Road.
settlements that grew around a serai. Sher Shah ensured
that the road journeys between all important centres of PUNJAB SEGMENT: CLASSICAL AND
his empire, particularly between Sonargaon in Bengal VERNACULAR NARRATIVE
and Attock on the Indus, were safe and comfortable.
Over the 16th and 17th centuries, the Mughals built upon The physical and administrative extents of the Grand
and enhanced what was introduced in India by Sher Trunk Road in the state of Punjab are marked by River
              Ghaggar to the South-east and Village Atari and Raja
instrument of government. The physical characteristics Taal along the Indo-Pakistan border in district Tarn
of the road and its surroundings attest to the ambitious Taran in the North-west.
road policy of the Mughals, most notably during the
54 Cultural Landscapes and Cultural Routes

The distinctive character of the Road is from the Mahal and Rajpura exist as part of a larger settlement
pulsating life on it and the lives of the people as it     %      J  
traverses through the landscape. Some of the prominent of Doraha and the Dakhni Serai of Village Jehangir sit
historic typologies that contribute to the historic prominently overlooking the Grand Trunk Road that
character of the Road are tombs and memorials, bridges passes by these locations.
across perennial streams, serais, kosminars (monolithic
brick structures that serve as milestones or markers of Recognition of the cultural diversity and coexistence
distance), water structures such as water tanks, baolis of the classical and the vernacular narratives is the
and wells, sacred sites such as gurudwaras (Sikh central theme that would determine the conservation
temples), mosques and temples. Considering that the management plan for the Grand Trunk Road, currently
alignment of the Road has been altered over time, being prepared by CRCI.
these medieval structures assist to trace the route in the
Mughal period. The remains of masonry bridges can be A geographical concentration of built heritage within
seen across River Kali Bein in Sultanpur Lodhi, across precincts or settlements, natural features, cultural
the Chiti Bein in Village Jehangir and the Hansala expressions associated with religious or other activities,
River in Sirhind. Water structures such as tanks, baolis community spaces, sites of associations and events
and wells are found in close proximity to serais and form ‘cultural heritage clusters’. Sirhind and Sultanpur
settlements. Lodhi are examples of intersecting narratives of
Mughal history and the Sikh history from the times of
                 the Gurus.
with travel and trade of the medieval period, did not
exist in isolation. While serais in Punjab can be found The Grand Trunk Road and the Imperial Highway of
deeply embedded in the city or can be sited at the Punjab comprise eight clusters of distinctive character.
entrance of a village, the serais of Sultanpur Lodhi, Nur Cluster One is the group of monuments from Rajgarh

Map showing a historic precinct in the settlement Jehangir with a serai, kosminar, tomb and bridge
 Cultural Landscapes and Cultural Routes 55

Image showing the historic Mughal bridges over Hansala Nadi in Fatehgarh Sahib

to Serai Lashkari Khan that comprise of several Serai near Mughal Serai in Doraha are of historical and
kosminars and serais and include the State Protected associational value. These sacred sites are associated
serai in Shambhu, an unprotected kosminar in Village with the visit of the Sikh Guru, Guru Hargobind in the
Chamaru and an unprotected Mughal Serai in Rajpura. 17th century.
It terminates at the protected Serai of Lashkari Khan in
Ludhiana District. Several sites of associational, architectural and
historical value exist in the medieval settlements
Cluster Two is the famed town of Sirhind and of Machiwara and Malerkotla that are linked to
Fatehgarh Sahib along with surrounding villages the Imperial Highway with a connecting historical
of Serai Banjara, Bassi, Brass, Dera Mir Miran, narrative. The four gurudwaras and a mosque in
Mahadiyan, Patarasi Kalan, Pathana, Ropar, Sanghol Machiwara from the times of the 10th Sikh Guru,
and Talanian. A few prominent examples of the iconic Guru Gobind Singh, and the Dargah of Haider Sheikh,
sites in this cluster are the Tombs of Ustad and Shagird, the Rehmatgarh Fort and Tombs of the Nawabs of
Tomb of Dera Mir Miran and the Mughal garden Malerkotla, in Malerkotla are of high cultural and
„ + +?| =  ))' =   ) historical value.
Khas Bagh. The associational value of this cluster with
Sikhism is tremendous. Cluster Four is the segment of the road that connects
Phillaur to Sultanpur Lodhi, the realigned segment of
The emergence of a new and diverse architectural the colonial period that connected Ludhiana to Lahore
style is evident with the advent of Sikhism, in the via the historic city of Amritsar. Phillaur to Sultanpur
form of gurudwaras and related structures. The / )     )    ) 
settlements of Lashkari Khan and Doraha, located period settlements of Goindwal, Jehangir, Nakodar,
in close proximity to the Grand Trunk Road have Nurmahal and Sultanpur Lodhi. Sultanpur Lodhi and
ensembles of serais, kosminars and water structures Q   '         
from the Mughal period. While the historic Mughal   = Q
period buildings of Serai Lashkari Khan, Mughal
Serai at Doraha and kosmimars have architectural and Jehangir, Nakodar and Nurmahal are located in close
       J>   Q proximity in the region of Bist Jullundhar Doab3, while
near Lashkari Khan and Gurudwara Damdama Sahib Q    (     = 
56 Cultural Landscapes and Cultural Routes

Rehmat Garh Fort in Malerkotla

Map showing cluster Phillaur Sultanpur Lodhi marking important historic settlements and the Mughal historic infrastructure along
the route
 Cultural Landscapes and Cultural Routes 57

River Beas. The three settlements in the Doab region Cunningham in the second half of the 19th century
were important towns during the period of Shahjahan established that a settlement with several Buddhist
and Jehangir and due to their location became the monasteries existed at the Sultanpur Lodhi in the
important trade and commerce centres. The interchange ancient period.
of human values that this cluster presents by means of
architecture, monumental art and landscape design and The region on the West bank of River Beas, between
     )       ")  the rivers of Beas and Ravi is known as the region of
serai has an extensively use of carved red sand stone in Manjha. The land is known for the stories of valour
its embellishments of its gateways and wasconstructed and spirituality. Amritsar lies in the heart of this region
with direct patronage of royal house of the Mughals with Sri Harmandar Sahib, the most revered site of
by none other than the Queen Empress Nur Jahan. the Sikhs. Amritsar as a city owes its existence to the
The garden tombs of Nakodar and the serai Dakhni in fourth Sikh Guru, Guru Ramdas in the 16th century,
village Jehangir are credited to have been constructed who came to this region from Goindwal. His successor,
during the reign of Jehangir and Shah Jehan. Both these Guru Arjan Dev, later moved north to Amritsar to build
buildings are rendered with mural and tile work. Sri Harmandar Sahib and it was in 1608 that he housed
the Adi Granth, the holy book of the Sikhs within the
      Q         sanctum sanctorum of the shrine.
with Guru Amar Das, the third Sikh Guru. A
stepwell built during the life of the Guru is a site It is important to note during this period, Lahore
of associational, architectural and historical value. was the nerve centre of the Mughals. The socio-
/ =        /   cultural dynamics in the Punjab greatly impacted
due to its historical, architectural and associational the political history of the region. Continuum of this
values. The settlement houses a Mughal period serai, can be witnessed through later periods of the pre-
remnants of Mughal period bridges, a kosminar and Sikh kingdom in the 18th century, during the rule of
several sacred sites associated with Islam, Hinduism Maharaja Ranjit Singh and later the British till the
  = ) Q "=   Q    =  Independence of India and the Partition of the Punjab
attained enlightenment on the banks of River Kali in 1947. The founding of Amritsar and its growth
Bein on which the town is located. Archival records and its relationship with Lahore is a very important
           ' * aspect in the story of the Road. The founding of the

Image of Mughal Bridge in proximity to serai and kosminar as part of historic precinct in Jehangir, Jalandhar
58 Cultural Landscapes and Cultural Routes

representation of art and craft form in the area under

consideration. Some of the most popular craft forms of
this region that provide for its uniqueness are phulkari
(type of embroidery), bagh (garments with phulkari
work that cover the entire body, made for special and
ceremonial occasions), tilla juttis (type of footwear
common in North India and neighbouring regions),
weapon making, salma sitara (cloth embellishment
technique using sequins and golden thread), winnower
making, nada (draw string) making, panjadurri (carpet)
making, pottery, shawl weaving, fan making, wood
Kosminar in Raja Taal, Tarn Taran along the Radcliff line at the works, sports industry, tandoor (oven) making and
international border, manifestation of the route being a cross utensil making, to name a few.
border connector

Therefore it is important to recognise that cultural

city of Amritsar on principles of social equality and heritage along the Grand Trunk Road in Punjab is not
)         (    ‘exclusive buildings and sites’ that belong to a period or
communities, many artisans and traders during the type, but are tangible and intangible heritage resources
Guru period. The city further grew to become an representing several narratives of diverse communities,
important centre of production and trade in the 19th traditions and memories.
century under the stable governance and patronage of
the Sikh ruler, Maharaja Ranjit Singh. CONSERVING THE MATERIALITY OF
THE PAST: CHALLENGE OF TODAY
  J     )       
Imperial route from Tarn Taran to Lahore comprise of The Mughal Imperial Highway and the Grand Trunk
Noordi, Serai Amanat Khan and Raja Taal. Besides Road in Punjab are rendered with several monuments,
main settlements there are smaller settlements such which on the basis of their management can be broadly
as Bhek Bhagel Singh, Burj, Chabaal, Cheema and               
Fatehabad. Serais, water structures and sacred sites are nationally protected monuments by the Ancient
protected by the Archaeological Survey of India (ASI) Monuments and Archaeological Sites and Remains Act
as well as many that are unprotected, contribute to the 1958 and later Ancient Monuments and Archaeological
understanding of the alignment of the route and hence Sites and Remains Act (Amendment and Validation)
reinforce its physical integrity. 2010. The second category comprises of buildings
protected by the State Government of Punjab by
The last settlement of the route on the international the Punjab Ancient and Historical Monuments and
border of India is Raja Taal. This settlement is Archaeological Sites and Remains Act 1964, while the
associated with Raja Todar Mal, one of the navratan third category is of unprotected structures.
(nine gems) in the court of Akbar. He is believed to
have built a large water tank on this route. All the It would not be incorrect to state that the route of the
buildings of Mughal period in this settlement that are Mughal Imperial Highway is discernible due to the
unprotected and in a serious state of neglect include the sheer existence of these Mughal period monuments and
water tank, an exquisitely decorative mosque known as sites. The serais, kosminars, bridges, water structures
Badshahi Masjid and a kosminar. are all associated with the ‘road infrastructure’.

Craft traditions that weave and interlace different % Š]            
            listed as historic structures of the Mughal period
element associated with the route. These can be on the route in Punjab. 14 sites are protected by the
seen throughout the length of the Road in Punjab in government of Punjab largely between River Ghaggar
works of architecture, calligraphy, jewellery making, and River Sutlej. There are 13 structures protected
miniature art, weaving, utensil and weapon making by the ASI. Out of these 13 structures protected by
and other crafts associated with the religious fabric of the Ancient Monuments and Archaeological Sites and
   '   (*    (   Remains Act 1958, several of the sites are protected in
area has been so high that it has also translated onto the parts, for instance in the case of the serais in Fatehabad
 Cultural Landscapes and Cultural Routes 59

and Serai Amanat Khan, where only the gateways of travellers on the route, hence forming an intrinsic
the serais are protected. part of the cultural narrative. Accordingly, protection
of these monuments that are contemporaneous with
Hence, several sites associated directly with the period the existing protected monuments is the need of the
            hour. There are structures of the same typology that
Mughal Imperial Highway are unprotected. These are protected in some cases, while in others they are
are seen primarily in rural areas as the stepwells in not. For instance, few kosminars are protected, yet a
Serai Amanat Khan, Doraha and bridges in Sultanpur large number in Raja Taal, Sultanpur Lodhi etc. are
Lodhi, Sirhind to name a few. These buildings are unprotected. Some of the structures form part of a
part of larger historic precincts and as a collective, historic precinct but only few isolated structures are
demonstrate life and use of these buildings by the protected, for example in case of the tombs in Nakodar,

                $   %
60 Cultural Landscapes and Cultural Routes

the two tombs are protected by the ASI, but the historic of associational value, with information on their
gateway and the baradari (a building or pavilion with settings and the communities living around the sites
@\       (    on the edge would assist in preparing integrated conservation
of the water tank are with the Public Works Department and development plans. These in turn could ensure
and are unprotected. It is important to note here that protection of the cultural values and result in plans
protection to these buildings had been accorded before responsive to needs of the communities. Education and
1947 and the rationale for the extents of protection has outreach programmes with the communities are critical
never been revisited ever since the Independence of and mapping and preparing a ‘peoples’ register’ of sites
India, in spite of the amendments to the Act.        )     

Several groups of monuments are facing development The mechanism for protection of monuments and
pressures in their vicinity. It is important that subsequent methods for preparation of cultural heritage
development guidelines to protect the inter management plans require consultation with the
relationships of the several elements of the ensemble communities and the stakeholders. This is necessary
are enacted. Also, these guidelines must be integrated to ensure that models for protection and management
with the master plans that the Punjab Urban of these cultural heritage clusters are responsive to
Development Authority is in the process of notifying, the concerns of communities and ensure that while
  ‡] J  ƒ '        heritage is protected the rights and responsibilities
of the communities are adequately recognised and
Protection of sites with a simultaneous initiative to the heritage resources contribute meaningfully to the
delineate the extents of the protected monuments is lives of the people to whom they rightfully belong.
necessary to prepare conservation management plans Subsequently, the Punjab State Government proposes to
       )     place this route on the Tentative List of World Heritage
Comprehensive databases on monuments and sites Sites of India.

Bibliographic references x Grand Trunk 2013, Grand Trunk Goods, x Singh, U 2008, A History of Ancient and
x Chalmers, R and Rouse, WHD (trans.) United States, viewed October 2013, Early Medieval India: From the Stone Age to
1990, The Jataka or Stories of the Buddha’s <http://www.grandtrunkgoods.com/gt- the 12th Century, Pearson Education India,
Former Births Vol. I and II, Pali Text Society, history/#sthash.0x8cvegz.dpuf>. New Delhi.
UK. x Hardy, ED (ed.) 1894, Petavatthu x Suri, VS (ed.) 1970, Punjab District
x CRCI 2012, Historical Narrative: Grand Commentary: Paramatthadipani IV, Pali Gazetteers Vol.1: Ludhiana District,
Trunk Road, New Delhi. Text Society, UK. Controller of Printing and Stationery,
x Elesseeff, V 2000, The Silk Roads: x Keesing, RM 1974, ‘Theories of Culture’, Chandigarh.
Highways of Culture and Commerce, Annual Review of Anthropology, vol. 3,
Berghahn Books, New York. pp. p73-97. Notes
x Elliot, HM and Dowson, J (eds.) 1871, x Latif, SM 1997, History of Punjab, Kalyani 1
1556-1605 AD
2
‘Tarikh-i-Sher Shahi or Tuhfat-i-Akbar Shahi Publishers, New Delhi. 1605-1627 AD
by Abbas Khan Sarwani’, History of India: x Priestly, NG Hebbert, FB 1908, ‘Railways 3
Doab is a tract of land lying between two
As told by her Historians, Volume IV: To and Roads’, The Imperial Gazetteer of   ^   ^ Q
the Year A.D. 1450, Trübner and Company, India: The Indian Empire Vol. III Economic,
London, pp. 417-421. Clarendon Press, Oxford, pp. 363-415.
 Cultural Landscapes and Cultural Routes 61

Majuli Cultural Landscape

Management and World Heritage status
*69685<$1$5$<$1$0857+<

ABSTRACT

The Outstanding Universal Value (OUV) of Majuli Cultural Landscape

is characterised by its unique geographical occurrence with cross-
cultural ethnic diversity, integrated by its religious ethos and the
ability of the people of the island to adapt their existence to the
changing dynamics of its ecosystem over centuries. The living culture
of the local community has evolved due to the interaction within
the diverse ethnic groups and their customary laws that were set in
symbiotic harmony with the natural resources thereby making it a rare
example in the world.

This continuity of traditional knowledge systems has ensured that

GSV Suryanarayana Murthy is currently the island has evolved as the cradle of Assamese culture over the
     €"#^' ‚Q             "?   
a Master’s degree in Conservation from School @" <     "  ? #
of Planning and Architecture, Delhi. Murthy mainly because of its limited accessibility. The Archaeological Survey
specialises in documenting Indian traditional of India (ASI) has nominated the region of River Island of Majuli for
building and historical building knowledge inscription into the World Heritage List as a Cultural Landscape for
systems. He prepared the World Heritage its distinct qualities and aims to further address all issues raised in
nomination dossier of the river-island, Majuli, this context.
situated in the middle of the Brahmaputra River
in Jorhat district of Assam for ASI.
62 Cultural Landscapes and Cultural Routes

Location of Majuli in Assam

CONTEXT, GEOGRAPHY, PEOPLE North-west; the Kherkatia Suti, a spill channel of the
AND CULTURE River Brahmaputra in the North-east and the main
Brahmaputra River on the South and the South-west.
The geographical setting of Majuli is in the North-       '   ( (   '
east region of India that comprises of seven states       ''  ) 
- Arunachal Pradesh, Assam, Manipur, Meghalaya,
Mizoram, Sikkim and Tripura as part of the greater sub-          ' )  
Himalayan region. Through the central state of Assam, formation of the islets locally called the chaporis
(  )       „ )  around the Majuli Island. This is resultant of the
Rising from the Brahmaputra basin, Majuli lies in a braiding of the River. Presently, 22 chaporis are
   (  +)  '      located in the waters surrounding the island, of
 )     ( +        which 18 have been assumed as stable or permanent.
form by itself is a unique geographical occurrence and The banks of the island as well as the North and the
a result of the dynamics of a vast river system. The South banks of the river Brahmaputra are wetlands, a
river, its tributaries, the wet lands and the islets along characteristic feature of the hydrology of the system.
with the island of Majuli make it among the largest These are locally known as beels. They are the abodes
mid-river delta systems in the world.    (    †    

The geo-morphology of this region is directly related The inhabitants of Majuli are a mixed community
to its physiographic characteristics. The island is of various ethno-cultural groups that have migrated
bound by the River Subanisri and her tributaries to the island over centuries, bringing with them
Ranganadi, Dikrong, Dubla,Chici and Tuni on the their traditions and skills and adapting their lifestyle
 Cultural Landscapes and Cultural Routes 63

rhythms to those of their natural environment. These mustard, potato, pulses, sugarcane and wheat are
communities are united by the social institution of the main crops cultivated in the island. Additionally,
sattra, introduced by the Vaishnava revivalist, Saint various seasonal vegetables and fruits are also grown in
Sankaradeva in the 16th century. Established as abundant quantity.
)    (      
villages, they set about a distinct social system based MAJULI AS A WORLD HERITAGE SITE:
as much on nature as on the arts and religion. Ignoring NEED FOR INSCRIPTION
caste and origins, these institutions were successful
in bringing together the people living on the island, The Government of India have nominated the region
creating spiritual and cultural cohesion and establishing of Majuli for inscription into the World Heritage List
an effective system of social governance still holds as a cultural landscape for its potential for the social
strong today. systems in play with the natural environment of the
island. The OUV of Majuli Island is represented by its
The island of Majuli today houses a total of 243 cross-cultural ethnic diversity, its religious ethos and
villages. Of these 210 are Cadastral Villages whose the ability of the people of the island to adapt their
revenues generated by the administration and supported existence to the changing dynamics of its ecosystem.
with revenue maps and 33 are Non-cadastral Villages This continuity of traditional knowledge systems where
that are mostly rehabilitated villages, shifted to Majuli in the human as well as the material resource base is
  (    maintained and their integral role in the daily activities
and occupations of the inhabitants of the island has
There are a total of 31 sattras in Majuli many of which ensured that the island has evolved as the cultural and
are in the mainland. A few of them are in chapori areas, spiritual hub of Assam for centuries.
        (     
located primarily towards the middle of the island.     )    (   
by the Brahmaputra River than external and modern
Each sattra represents within its region, a centre ( ) '     )     '
for cultural activities and even acts as a democratic Floods are an annual and regular occurrence on the
institution to settle local disputes. Most of the villages site for centuries, incorporated into the lifestyles and
associate with their sattra and the villagers partake in occupation cycles of the inhabitants. Rich alluvial
the activities of their own sattra during festivals and          (    
occasions. These sattra villages house the Namghar, is the backbone of the agricultural community. The
where all the activities related to the sattra are carried wetlands formed are an integral part of the ecosystem
out. Many of these sattra villages are also important of Majuli. However, regular earthquakes, in particular
centres for the Majuli Island. These sattra villages and the earthquake of 1950 that caused the raising of the
other vernacular settlements house people from various river bed, have increased the intensity and occurrence
ethnic origins, all of whom have settled in Majuli  ( #    =     
including Mishings, Deori, Sonowal Kachari, Koch, increased manifold and the geographical area of
Kaivartta and Nath. The settlements have their own        ' ) ' 
characteristics and building typologies. The Mishing since 1950. Displacement of people and increase in
and Deori population, which is the largest, has a unique population has increased the pressure on the ecosystem
house form that is on bamboo stilts, being located near as well as the centuries old cultural and social system
the riverine tracts, wetlands and other hydrological of Majuli. It has increased the urgency of the protection
features. All these settlements are interspersed in a of the region and its heritage components.
natural setting with wide variety of land types and
water bodies that have resulted due to the interplay ONGOING ACTIVITIES AND
between geo-morphology and hydrology of the island MANAGEMENT
and the River. These diverse water bodies and groves
  † (      Initiatives in 2009
Publication of ‘The Majuli Island-Society, Economy
Only 25.85 % of total land area of Majuli is suitable  $ Y ' & "        
for cultivation. Though the cultivable land is small compiling an exhaustive research of the socio- cultural
in size in comparison to its total area, yet it is fertile history of Majuli made available for scholars as well as
and suitable for production of different crops. Paddy, site managers.
64 Cultural Landscapes and Cultural Routes

Sattra morphology from vernacular architecture typology

 Cultural Landscapes and Cultural Routes 65

Sattra culture and life

66 Cultural Landscapes and Cultural Routes

The natural and intangible heritage of Majuli

Initiatives in April, 2010 Initiatives in November, 2011

Jairam Ramesh, who was the Union Minister for A committee constituted by Majuli Cultural Landscape
Environment and Forests visited the island in April, Management Authority (MCLMA), Government
2010. He emphasised the need to declare the world’s of Assam with expertise in history, anthropology,
largest river island of Majuli an eco-sensitive zone. archaeology, culture, River Brahmaputra and erosion,
It was planned to request the Bombay Natural apart from nongovernment organisation representatives
History Society to take up a comprehensive study from Majuli Island Protection And Development
   '         Q  Council (MIPADC) and Government Departments,
River Dolphins there. Assam government was asked endorsed the contents of the revised dossier.
to submit a project proposal. It was opined that the
declaration of Majuli an eco-sensitive zone would help Initiatives from 2011-2013
protect the river island from the recurring problem of The Commissioner, MCLMA commenced the process
(       )   )=  of preparing a Comprehensive Development Plan
     +  |     (CDP) to be called the ‘Management Plan for Majuli’
step towards recognising the rich bio-diversity and based on MCLR Act, 2006 and various meetings of
unique eco-system of Majuli. Planning Commission, Ministry of Development,

      Conservation and Protection Management method

#    '   ‚  Cultural resource x MCLR Act, 2006
under criteria for selection by Natural resource x Converging to Majuli protection, conservation
UNESCO- World Heritage Ecology and management
Committee Bio-diversity x Inclusive of all stakeholders
Human Settlements and cultural x Participatory method for overall consent
Ecology x Inclusive network oriented method for all
inclusive consent
 Cultural Landscapes and Cultural Routes 67

North-east Region (DoNER Ministry), Ministry of x Broad methodology followed in the dossier
Water Resources, Jorhat District Administration and preparation (2011-13) as a guideline, shall be
Brahmaputra Board. introduced with all levels of MCLMA.

ROLE OF COMMUNITIES AND PUBLIC STATUS OF NOMINATION

PARTICIPATION
x Majuli was placed on the Tentative List in the year
It is envisaged that Majauli will continue to be 2004. After submission of dossier it was referred
managed with community participation as follows: in 2006 and deferred in 2008 with a suggestion to
x Operationalising the MCLR Act, 2006 by increasing complete the inventory of 31 sattras and invite an
the strength of the staff, imparting training with the $%J% )         sattras.
objective of developing effective management of x As part of the management plan, the Assam
the island from all forms of damage to cultural and Government passed the Majuli Cultural Landscape
natural resources. Region Bill in 20061 to put in place legal protection,
x Intangible heritage as recognised by UNESCO to integrate development with the cultural heritage
shall be simultaneously prepared and presented of the island. In response to the World Heritage
by Government of India. This includes sattriya Committee decision of 2008, the revisions of the
dance, bhaona (an Assamese theatrical form with dossier will include detailed inventory of sattras
religious themes), manuscripts, Nam Ghosha that is along with satellite imagery of the locations and
a Vaishnavite scripture, local tribal life and systems, surroundings of sattras. It is also stressed that the
agricultural seasonal practices and festival dances. meaning of sattra      ' MCLR Act,
x The format of World Heritage Convention 2006 and as perceived and used in the Brahmaputra
Operational Guidelines 2013 for properties Valley, Assam.
for inscription on the World Heritage List shall
be introduced to the MCLMA for its effective In future, the ASI and the State Government may
operations. plan to submit a revised dossier incorporating all
x Local level strength, support and participation referred points of the previous decisions, including an
shall be ensured and prepared for protection and evaluation visit by the ICOMOS Advisory Mission for
conservation measures. Central and international an appraisal of the scope of the property, with a target
             to achieve World Heritage status for the River Island of
assistance. Majuli Cultural Landscape.

Acknowledgement x 2012, ‘Majuli Island – Cultural Landscape Centre, Paris.

Illustrations and photographs used are taken and Living Traditions’ Nomination Dossier x UNESCO 2008, Decision Lists for
from the dossier documents of 2004 and 2012 for inscription in World Heritage List, ASI. Statutory Meetings of World Heritage
x Bharat Saikia 1998, Dossier on Majuli, Convention, UNESCO World Heritage
Bibliographic references MIPADC, Assam. Centre, Paris, <http://whc.unesco.org/en/
x 2004, ‘Majuli Island – Cultural Landscape x Nath, D 2009, The Majuli island- Society, sessions/32COM>.
and Living Traditions’ Nomination Dossier Economy and Culture, Shipra Publication,
for inscription in World Heritage List, ASI. Delhi. Notes
x 2008, ‘Majuli Island Cultural Landscape’, x UNESCO-WHC 2008, Operational 1
Later came to be known as Majuli Cultural
Executive Summary of documentation for Guidelines for the Implementation of the Landscape Region Act, 2006.
inscription on World Heritage List, ASI. World Heritage Convention, World Heritage
68 Cultural Landscapes and Cultural Routes

Challenges of Serial
Nominations
‘In the case of a serial nomination, the potential Outstanding Universal Value of the
 &      ‚   Q ^   ‚ 
a very clear rationale for the selection of the components, and this rationale must be
based on the potential Outstanding Universal Value and the attributes and features that
the components demonstrate.’ (p.76, Preparing World Heritage Nominations, Second
Edition, 2011 World Heritage Resources Manual)

Serial nominations in India require a rigorous approach and strong commitment

for management, which is explained in this section through the cases of recent
serial Indian sites inscribed in 2012 and 2013.

Source: Karthikeyan Vasudevan, WII

 Challenges of Serial Nominations 69

Vital, Vast and Valued

The Western Ghats of India
0((1$9(1.$7$5$0$1.$57+,.(<$19$68'(9$1
$1'9,12'%0$7+85

Karthikeyan Vasudevan is a senior Principal ABSTRACT

Scientist at the Laboratory for Conservation of
Endangered Species in the Centre for Cellular The World Heritage Convention accounts for over eight percent of
and Molecular Biology, Hyderabad. Karthikeyan protected areas of the world. Serial World Heritage sites bring together,
is a board member of International Society for under one nomination, a series of related places that demonstrate
Study and Conservation of Amphibians, USA. Outstanding Universal Value (OUV). There are a number of challenges
in the process of serial nominations such as forging synergies between
Meena Venkataraman is an independent wildlife   #"                 K
scientist specialising in carnivore research and     "      " Q     #
has a PhD from the Wildlife Institute of India. Western Ghats, inscribed as a UNESCO World heritage site in 2012.
Her research work on lions was highlighted The nomination and process of inscription as a natural World Heritage
in the BBC documentary ‘Last Lions of India’. site spanned over 10 years with commitment shown by various agencies
Meena was also involved in the preparation of in maintaining the integrity as well as conserving the values of this
nomination dossier for the Western Ghats. invaluable property.

Vinod B Mathur is the Dean, Faculty of Wildlife INTRODUCTION

Sciences at Wildlife Institute of India. He is
also currently serving as member of Ministry of The noble cause of protection of natural areas is driven by a desire to
Environment and Forests, Government of India. preserve sites with special natural values and the acceptance of moral
Vinod led the initiative of inscribing the Western responsibility to ensure the survival of threatened life forms. In the last
Ghats on the World Heritage List in 2012. 40 years, the World Heritage Convention has become the most successful
70 Challenges of Serial Nominations

Serial Sites: Western Ghats

Sub-cluster Site Element No. Site Element Name Area (km2) State

(1) Agasthyamalai 001 Kalakad-Mundanthurai Tiger Reserve 895.00 Tamil Nadu

002 Shendurney Wildlife Sanctuary 171.00 Kerala
003 Neyyar Wildlife Sanctuary 128.00 Kerala
004 Peppara Wildlife Sanctuary 53.00 Kerala
005 Kulathupuzha Range 200.00 Kerala
006 Palode Range 165.00 Kerala
SUB-TOTAL 1,612.00
(2) Periyar 007 Periyar Tiger Reserve 777.00 Kerala
008 Ranni Forest Division 828.53 Kerala
009 Konni Forest Division 261.43 Kerala
010 Achankovil Forest Division 219.90 Kerala
011 Srivilliputtur Wildlife Sanctuary 485.00 Tamil Nadu
012 Tirunelveli (North) Forest Division (part) 234.67 Tamil Nadu
SUB-TOTAL 2,806.53
(3) Anamalai 013 Eravikulam National Park (and proposed extension) 127.00 Kerala
014 Grass Hills National Park 31.23 Tamil Nadu
015 Karian Shola National Park 5.03 Tamil Nadu
016 Karian Shola (part of Parambikulam Wildlife 3.77 Kerala
Sanctuary)
017 Mankulam Range 52.84 Kerala
018 Chinnar Wildlife Sanctuary 90.44 Kerala
019 Mannavan Shola 11.26 Kerala
SUB-TOTAL 321.57
(4) Nilgiri 020 Silent Valley National Park 89.52 Kerala
021 New Amarambalam Reserved Forest 246.97 Kerala
022 Mukurti National Park 78.50 Tamil Nadu
023 Kalikavu Range 117.05 Kerala
024 Attapadi Reserved Forest 65.75 Kerala
SUB-TOTAL 597.79
(5) Talacauvery 025 Pushpagiri Wildlife Sanctuary 102.59 Karnataka
026 Brahmagiri Wildlife Sanctuary 181.29 Karnataka
027 Talacauvery Wildlife Sanctuary 105.00 Karnataka
028 Padinalknad Reserved Forest 184.76 Karnataka
029 Kerti Reserved Forest 79.04 Karnataka
030 Aralam Wildlife Sanctuary 55.00 Kerala
SUB-TOTAL 707.68
(6) Kudremukh 031 Kudremukh National Park 600.32 Karnataka
032 Someshwara Wildlife Sanctuary 88.40 Karnataka
033 Someshwara Reserved Forest 112.92 Karnataka
034 Agumbe Reserved Forest 57.09 Karnataka
035 Balahalli Reserved Forest 22.63 Karnataka
SUB-TOTAL 881.36
(7) Sahyadri 036 Kas Plateau 11.42 Maharashtra
037 Koyna Wildlife Sanctuary 423.55 Maharashtra
038 Chandoli National Park 308.90 Maharashtra
039 Radhanagari Wildlife Sanctuary 282.35 Maharashtra
SUB-TOTAL 1,026.22
GRAND-TOTAL 7,953.15
 Challenges of Serial Nominations 71

The Western Ghats World Heritage Site represented by

seven sub-clusters, containing 39 site elements, within the
States of Karnataka, Kerala, Maharashtra and Tamil Nadu
Source: WII-GIS Cell
72 Challenges of Serial Nominations

requirements. As of 2013, 981 sites have been inscribed

globally by 160 States Parties. Of these, 759 are
cultural, 193 natural and 29 are mixed properties.

Although nomination for inscription of a heritage site is

a two step process namely nomination in Tentative List
 '   )    )    
the evaluation and decision is a well deliberated and
 '    )      
by World Conservation Union in the case of natural
           ' 
international panel of experts. The decision to inscribe,
refer, defer or reject a nomination is made at the annual
meeting of the World Heritage Committee.

A diligently driven conservation initiative began

with inclusion of the Western Ghats in India’s
List of Tentative World Heritage Sites in 2002
where government departments, non-governmental
Diversity and endemism of Balsams is characteristically high in organisations (NGOs) and scientists collected their
the Western Ghats and Imaptiens parasitica, a parasitic balsam
is a good example of this phenomenon. Source: V Deepak, WII
resources with a common goal of inscribing the
Western Ghats of India as a World Heritage site. Case
study of the processes and efforts involved in the
inscription of 39 serial sites on the World Heritage List
is presented in the subsequent sections of the paper.
        )     
by India.

PREPARATION OF TENTATIVE LIST

There was never any debate on whether the Western

Q   †     )' )      
Party, India for inscription as a natural heritage site.
But, to capture the OUV of the 1,600 kilometres
Large proportion of plant species are endemic to the Western
long mountain chain covering a total area of 140,000
Ghats. The endemic palm Bentinckia condappana, thrive in
southern Western Ghats. Source: Karthikeyan Vasudevan, WII square kilometres with all its complexity and making
choices above and beyond various administrative,
international instrument to recognise the most         =   
exceptional natural places in the world. Inscription challenge, a science based approach for site selection
of a World Heritage site is a global recognition of a was adopted over emotional or political considerations.
country’s natural and cultural heritage and is both a The process of selection of potential sites addressed
matter of pride and enhanced security for the inscribed issues such as complementarities and endemism of
property. Thus, a site declared as World Heritage (          
under the UNESCO World Heritage Convention, is a outside Protected Area (PA) boundaries. The entire
cultural or natural site credited with outstanding global landscape of the Western Ghats was treated as a serial
   nomination, with various distinct parts of the landscape
being represented by seven sub-clusters containing 39
As per the Operational Guidelines of the UNESCO site elements within the states of Karnataka, Kerala,
World Heritage Convention for a site to be inscribed Maharashtra and Tamil Nadu.
on the UNESCO World Heritage List, it must have
OUV and must meet one or more of the 10 criteria The next step in the nomination of the site was
besides meeting conditions of integrity (for natural attribution of OUV. According to the Operational
sites), authenticity (for cultural sites) and protection Guidelines of the World Heritage Convention, a
 Challenges of Serial Nominations 73

& ' *     #    +       ;  <   =     
of this endangered primate occur within the World Heritage Site. Right: Amphibians are excellent examples of spectacular in-situ
+       >             ;  < 
Source: Karthikeyan Vasudevan, WII

nominated natural site should have one or more of especially its ecological, biological and evolutionary
these criteria: importance. These mountains mediate the rainfall
Criterion (vii) Contain superlative natural phenomena regime of peninsular India by intercepting monsoon
or areas of exceptional natural beauty and aesthetic storm systems. Around 60 rivers originate from the
importance Western Ghats and are important sources of water in
Criterion (viii) Be an outstanding example catchment areas of peninsular India. They directly and
representing major stages of Earth’s history, including indirectly support the livelihoods of over 200 million
        +     people through ecosystem services. Over 30% of all
processes in the development of landforms or          )))  
   )    '      found in India are also found in this region, while it
Criterion (ix) Be an outstanding example representing represents less than six percent of the land area of
   +                (   ) 
processes in the evolution and development of have interesting evolutionary origins. Shaped by pre-
terrestrial, fresh water, coastal and marine ecosystems historic tectonic events, the mountain range embodies
and communities of plants and animals unique ecological and evolutionary processes that
Criterion (x) Contains the most important and have resulted in the present day endemism of plants
         in-situ conservation and animals in the region. Thereby, extant taxa in the
of biological diversity including those containing Western Ghats apart from endemics, exhibit a complex
threatened species of outstanding universal value from    %        #) 
the point of view of science or conservation. that is, Saharan and central Arabian regions.

In the nomination dossier submitted by India in 2009 The forests of the Western Ghats include a mosaic of
the Western Ghats were proposed to be inscribed under landscapes varying from thorn scrub to dense evergreen
criteria (vii) and (x).         )   (
and fauna, many species of which are endemic and
PREPARATION OF FINAL NOMINATION endangered. Three distinct forest types occur here,
DOSSIER i.e., Montane Rainforest, Moist Deciduous Forest and
Dry Deciduous Forest that are further categorised into
™    %!~    '   six ecological zones. The nominated sites, extending
the importance of the Western Ghats as a whole from south to north and falling under seven Sub-
74 Challenges of Serial Nominations

clusters spread across four states, capture the gamut biodiversity hotspots. On close examination, using
   '  †      ( '  proportion of endemic species and number of genera
range of elevation and rainfall gradients. At the second per species, WG-SL hotspot ranks eighth in the world
level, therefore, the 39 sites were highlighted for their    )        ) 
distinctive value especially under criteria (x). that despite being a mainland hotspot, WG-SL hotpot
underwent in-situ speciation during its long history of
The State Forest Departments of Karnataka, Kerala, evolution and it equates to an island hotspot.
Maharashtra and Tamil Nadu provided Management
Plans for each of the 39 sites along with other FIELD EVALUATION
supporting information and photographs. A spatial
atlas in Geographic Information System (GIS) domain India’s nomination dossier for inscription of
was prepared showing various thematic attributes of Western Ghats as a serial nomination under natural
the 39 sites including corridor and connectivity areas. heritage sites was peer-reviewed by International
Supporting materials including studies on biodiversity, Union for Conservation of Nature (IUCN) experts
ecological and taxonomic information were collated to and subsequently Technical Evaluation Mission of
)=       )        !$" )      %  \]@]   
Western Ghats. The Management Plans authenticated report, the technical mission appreciated the merit
          '          )         
nomination dossier contained site description, history, and supplementary information. The queries were
conservation status, threats and policies along with related to rationale of selected boundaries, presence
implementation, protection and management regime. of infrastructure development projects such as dams
The aspects that required careful detailing were the and presence of plantations and habitations adjacent
>       %!~  )  to nominated sites. In order to further strengthen the
analysis with other global sites. nomination, digitised versions of maps and a strong
case for nomination under criteria (ix) in place of
Indo-Burma, Himalaya and the Western Ghats and Sri criteria (vii) was made by India. Further, suggestions
Lanka (WG-SL) have been listed among the 34 global     =       
management plan for serially nominated sites were
also made in the report. A revised dossier was again
prepared taking into account all the suggestions and
    )   ' \]@@

REVIEW AND DECISION AT UNESCO

The 21-nation World Heritage Committee convened at

Paris in 2011 to evaluate the merits of India’s revised
proposal for inscription of the Western Ghats on the
list. IUCN had recommended to the World Heritage
Committee to ‘defer’ the decision on the Western Ghats
but the Indian delegation convinced the WHC that it
was a case of ‘referral’. The Indian delegation was back
again at the World Heritage Committee convened at
 ƒ   \]@\       
addressed all queries related to the nomination. The
concerted efforts and conviction prevailed and Western
Ghats was inscribed as World Heritage Site in 2012,
backed by 17 member countries.

LESSONS LEARNT AND POSITIVE

OUTCOMES
Among reptiles, lizards show high levels of endemism and
specialisation in the Western Ghats. The large scaled lizard,
Calotes grandisquamis is restricted to evergreen forests Although science, management and policy are often
Source: Karthikeyan Vasudevan, WII considered as areas of work that do not overlap in
 Challenges of Serial Nominations 75

Mannavan Shola in Kerala is among the last remaining old growth middle elevation wet-evergreen forest that harbours many
endemic plant species and is now part of the World Heritage. Source: Karthikeyan Vasudevan, WII

their operational realm, throughout the process from creats increased public awareness at the national and
nomination to inscription of Western Ghats as a World international level and strengthens commitment to
Heritage site, effective networking between science, maintain the site and conserve it for posterity.
management and policy was the driving force for its
successful conservation outcome. The Ministry of POST DECLARATION FOLLOW UP AND
Environment and Forests (MoEF), Wildlife Institute OUTCOMES
of India (WII) and State Forest Departments of
Karnataka, Kerala, Maharashtra and Tamil Nadu Inscription of the Western Ghats on the World
worked synergistically with enthusiastic participation Heritage List is the beginning of a long and
and contribution of civil society organisations formidable journey for conserving this unique global
namely Ashoka Trust for Research in Ecology and heritage. Strengthening of efforts is needed to build
the Environment (ATREE), Bangalore and Nature conservation–development synergies, promote
Conservation Foundation (NCF), Mysore. responsible tourism and engage the local communities
in the conservation and management of the sites in a
™      '         manner that provides livelihood enhancement.
reinforced by an enormous body of literature ranging
from published research papers, articles, reports and Just as the Western Ghats has in its historic evolution,
theses. High quality spatial databases were prepared India’s World Heritage nomination has gone through
to support the nomination that included forest cover           ?  
maps of each site within the sub-cluster totalling to 117 Commitee and has weathered many storms by way
maps and distribution maps of endangered and endemic of objections and apprehensions. But it has survived
species. This was a very important output produced the journey and succeeded in a way that it stands tall
during the nomination process. A framework for among other World Heritage sites. The inscription
implementing conservation in the entire Western Ghats   ' )      
from the southern to northern limit, cutting across state of having a strong research-policy interface. The
and PA boundaries was another relevant conservation efforts of MoEF, Government of India in conserving
outcome for the region. the unique biological heritage have been recognised by
UNESCO by granting approval to India’s proposal for
The inscription recognised the importance of the       !"#$% $  ' \ $  
Western Ghats with its unique ecological services and World Natural Heritage Training and Research at the
biodiversity. Being awarded World Heritage site status WII, Dehradun.
76 Challenges of Serial Nominations

Bibliographic references are higher in the tropics’, The American south India’, Journal of Biogeography, vol.

* Ali, S & Ripley, SD 1987, Compact Naturalist, vol. 101, no. 919, pp. 233-249. 34, no. 5, pp. 843-852.

Handbook of the Birds of India and * Johnson, JA 1999, Diversity and Ecological * Pascal, JP 1986, Explanatory booklet on the

Pakistan: Together with those of           ? forest map of south India, French Institute of

Bangladesh, Nepal, Bhutan and Sri Lanka, rivers in Western Ghats, Doctoral Thesis, Pondicherry, India.
nd
2 Edition. Oxford University Press, New unpublished, Manonmanian Sundaranar * Rai, SN & Proctor, J 1986, ‘Ecological

Delhi. University, Tamil Nadu. studies on four rain forests in Karnataka,

* Bhatta, G 1997, ‘Caecilian diversity of * Kunte, K 2011, ‘Biogeographic origins  „Q   ^   ^  

the Western Ghats: In search of the rare ‚     ‚     and biomass’, Journal of Ecology, vol. 74,

animals’, Current Science, vol. 73, no. 2, Western Ghats, south-western India’, in no. 2, pp. 439-454.

pp.183-187. DR Priyadarshan, KA Subramanian, MS * Raman, TRS 2001, Community ecology and

* Biju, SD & Bossuyt, F 2003, ‘New frog Devy & NA Aravind (eds.), Invertebrates conservation of tropical rainforest birds in

family from India reveals an ancient in the Western Ghats - Diversity and the southern Western Ghats, India, Doctoral

biogeographical link with the Seychelles’, Conservation, Ashoka Trust for Research in Thesis, unpublished, Indian Institute of

Nature, vol. 425, pp. 711-714. Ecology and the Environment, Bengaluru. Science, Bangalore.

* Dahanukar, N, Raut, R & Bhat, A 2004, * Lourens, L, Hilgen, F, Shackleton, NJ, * Robin, VV, Sinha, A & Ramakrishnan,

‘Distribution, endemism and threat status Laskar, J & Wilson, D 2004, ‘The Neogene U 2010, ‘Ancient Geographical

 @     ƒ  {  Period’, in FM Gradstein, JG Ogg & AG Gaps and Paleo-Climate Shape the

of India’, Journal of Biogeography, vol. 31, Smith (Eds.), A Geologic Time Scale 2004, Phylogeography of an Endemic Bird in

no.1, pp. 123–136. Cambridge University Press, Cambridge. the Sky Islands of Southern India’, Plos

* Daniels, R 1992, ‘Geographical distribution * Mani, MS (ed.) 1974, Ecology and One, vol. 5, no.10, viewed September

patterns of amphibians in the Western biogeography of India, Dr. W. Junk 2013, <http://www.plosone.org/article/

Ghats, India’, Journal of Biogeography, vol. Publishers, The Hague, Netherlands. info%3Adoi%2F10.1371%2Fjournal.

19, no. 5, pp. 521–529. * MoEF 2006, India’s Tentative List of Natural pone.0013321>.

* Datta-Roy, A & Karanth, KP 2009, ‘The Heritage Properties to be inscribed on the * Shanker, K 1996, ‘Secrets of the

Out-of-India hypothesis: What do molecules UNESCO World Heritage List, prepared Shieldtails’, Resonance, vol. 1, no. 8, pp.

suggest?’, Journal of Biosciences, vol. 34, by ATREE, Bangalore, Wildlife Institute 64-70.

no. 5, pp. 687-697. of India, Dehradun, Nature Conservation * Subramanian, KS & Muraleedharan, MP

* Dutta, SK, Vasudevan, K, Chaitra, MS, Foundation, Mysore, India and submitted 1985, ‘Origin of the Palghat Gap in South

Shanker, K & Aggarwal, RK 2004, ‘Jurassic by State Party India to UNESCO World India-a synthesis’, Journal of the Geological

frogs and the evolution of amphibian Heritage Centre, Paris, pp. 111. Society of India, vol. 26, pp. 28–37.

endemism in the Western Ghats’, Current * MoEF 2009, Serial Nomination of the * Vasudevan, K, Kumar, A & Chellam, R

Science, vol. 86, no. 1, pp. 211–216. Western Ghats of India: Its Natural Heritage 2006, ‘Species Turnover: the case of stream

* Giri, VB 2010, ‘The northern Western for inscription on the World Natural Heritage amphibians of rainforests in the Western

Ghats-an abode to the unique diversity List, prepared by Wildlife Institute of India, Ghats, Southern India’, Biodiversity and

of amphibians and reptiles’, Proposal for Dehradun, India and submitted by State Conservation, vol. 15, no. 11, pp. 3515-

inscription on the world natural heritage list, Party India to UNESCO World Heritage 3525.

Maharashtra Forest Department, pp. 33-37. Centre, Paris, pp. 248. * Vidya, TNC, Fernando, P, Melnick,

* Inger, RF & Dutta, SK 1986, ‘An overview * MoEF 2009a, Serial Nomination of the D & Sukumar, R. 2005, ‘Population

of the amphibian fauna of India’, Journal Western Ghats of India: Its Natural Heritage differentiation within and among Asian

of Bombay Natural History Society, vol. 83 for inscription on the World Natural Heritage elephant (Elephas maximus) populations

(suppl.), pp. 135-146. List. Map Atlas of 39 Serial Sites, prepared in southern India’, Heredity, vol. 94, no. 1,

* Inger, RF 1999, ‘Distribution of Amphibians by Wildlife Institute of India, Dehradun, pp. 71-80.

in Southern Asia and adjacent islands’, in India and submitted by State Party India * Whitmore, TC 1993, An introduction to

WE Duellman (ed.), Patterns of Distribution to UNESCO World Heritage Centre, Paris, tropical rain forests, Oxford University Press

of Amphibians, John Hopkins University pp. 41. ELBS, Oxford.

Press, Baltimore, Maryland. * Naniwadekar, R & Vasudevan, K 2007,

* Janzen, DH 1967, ‘Why mountain passes ‘Patterns in diversity of anurans along an

elevational gradient in the Western Ghats,
 Challenges of Serial Nominations 77

The Hill Forts of Rajasthan

as a Serial Nomination
6+,.+$-$,1$1'5,0$+22-$

ABSTRACT

       "        XYnd

session of the Committee where the decision states ‘the developing range
of discussions on the nomination of serial transnational properties as a
positive expression of international cooperation in line with the aims and
objectives of the World Heritage Convention; and acknowledges the need
to enhance the guidance to States Parties, Advisory Bodies and the World
Heritage Centre on the policies and procedures linked to the nomination
Shikha Jain is Director, Development and and management of serial national and transnational properties’. While
Research Organisation for Nature, Arts and serial transnational nominations are complex in themselves, even serial
Heritage and a Founding Trustee of the Indian     "         Z  =  
Heritage Cities Network Foundation. She is the selection of components for a nominated property.
also Member Secretary, Advisory Committee
on World Heritage Matters under the Ministry of The inscription of Hill Forts of Rajasthan as a serial site with six forts
Culture since 2012. on World Heritage List in 2013 was achieved after rigorous research by
the State Party and further dialogue and discussions with ICOMOS to
Rima Hooja is an archaeologist, historian establish the Outstanding Universal Value (OUV) and integrity of the
and writer.She is the Director of MISD India series. This article presents the process involved in the judicious selection
Programme of the University of Minnesotta, of six among the hundreds of forts existing in Rajasthan for this serial
USA. She is also a member of National nomination and further elaborates on the challenges associated with
Monuments Authority and Vice President, articulating OUV, integrity and management for a serial nomination.
Interim Committee, ICOMOS India.
78 Challenges of Serial Nominations

NEED FOR A SERIAL NOMINATION FOR 137 of the Operational Guidelines on the selection of
FORTS OF RAJASTHAN component parts for serial properties. These changes
were incorporated into the November 2011 edition of
Considerable thought was given by the State Party the Operational Guidelines.
before deciding whether the nature of the nomination
for Rajput Fort(s) from Rajasthan should be singular, The 2008 wording of paragraph 137 was as follows:
that is, one single outstanding fort or, a series of forts. 137. Serial properties will include component parts related
because they belong to:
The state of Rajasthan (roughly comparable in area a) the same historic-cultural group
to the country of France) in North-western India b) the same type of property which is characteristic of the
has hundreds of forts of varying scale that served as geographical zone
historic strongholds of the medieval Rajput warrior c) the same geological, geomorphological formation, the
rulers. These forts present a rich variation across same biogeographic province, or the same ecosystem type
the vast range of geographical and cultural zones and provided it is the series as a whole-and not necessarily
within Rajasthan. Considering the unique adaptations the individual parts of it-which are of Outstanding
of Rajput hill defence architecture across varying Universal Value.
topography of desert, hills, mountains, plateaus and
           >  ' The revised wording of paragraph 137 is now as
within the setting of its complex and interweaving follows:
historic-cultural zones; it is only a judicious selection 137. Serial properties will include two or more component
of a representative number of forts presented as a series     ' '   =‰
that will express the uniqueness of Rajput defence  $)     (     
architecture. Multiple component parts are essential to functional links over time that provide, where relevant,
express the OUV and integrity of this property. landscape, ecological, evolutionary or habitat connectivity.
b) Each component part should contribute to the
HILL FORTS OF RAJASTHAN Outstanding Universal Value of the property as a whole
SUBMITTED AS A SERIAL NOMINATION          '     
way, and may include, inter alia, intangible attributes. The
The ‘Hill Forts of Rajasthan’ was initially submitted resulting Outstanding Universal Value should be easily
 ' \]@@      ' ) '  understood and communicated.
forts in the North-western state of Rajasthan in India, c) Consistently, and in order to avoid an excessive
each strategically built and located on the oldest fragmentation of component parts, the process of
mountain range, the Aravallis in the region and each nomination of the property, including the selection of
as a representative of the medieval defence settlements the component parts, should take fully into account the
  >          overall manageability and coherence of the property (see
selected since they collectively constitute the most paragraph 114) and provided it is the series as a whole-
authentic, best conserved and most distinct sites of and not necessarily the individual parts of it-which are of
Rajput military architecture of Rajasthan region. Outstanding Universal Value.
In conformation with Article 138 of Operational
Guidelines 2008 (now 2013) for serial nominations, Though the revised wording applies to properties
it was also recognised that this series may in future submitted for nomination after November 2011,
extend to include one additional fort from Rajasthan in some ways it did impact the evaluation of the
that contributes to the overall OUV of the series. nomination for Hill Forts of Rajasthan that was
submitted in February 2011 and was in the process
CHANGING OPERATIONAL GUIDELINES of evaluation during this phase of change in the
FOR SERIAL NOMINATIONS Operational Guidelines.

Following an International Expert Meeting on Serial APPROACH FOR SELECTION OF

Nominations held in Ittingen, Switzerland, between COMPONENTS
February 25 to 27, 2010 in cooperation with the World
Heritage Centre, the World Heritage Committee at its The selection of components for the serial nomination
35th session (June 2011) adopted changes to paragraph ‘Hill Forts of Rajasthan’ is explained as a process that
 Challenges of Serial Nominations 79

   )     )        Sacred structures or temples

>          † '    Soldiers’ quarters, houses, bazaars, temples and
following parameters: public spaces for fort residents associated with
x Outstanding military adaptations of the the maintenance and functioning of the fort and
physiographic terrain for defence and shelter by the royals
Rajputs  Defence mechanisms including fort walls,
x           %!~   bastions, gateways, armoury, water-systems and
series granaries for long term sustenance during siege,
) '    (
BEGINNING WITH A BASIC INVENTORY  Exclusive ground area for shelter of inhabitants
OF FORTS OF RAJASTHAN from surroundings during siege, emergency,
   (
An initial list of Forts of Rajasthan was prepared based
          '     The initial list of 54 forts was further examined
Survey of India (ASI), forts protected by the State considering the presence of key characteristics of
Department of Archaeology, Rajasthan and all public as Rajput military architecture i.e. a selection of primarily
well as private forts included in academic research on hill forts that are designed as citadels for defence and
the subject. shelter. This results in exclusion of a number of forts
from the initial inventory such as Sajjangarh which was
PRIMARY CHARACTERISTICS OF temporary abodes for pleasure, Nahargarh which was
RAJPUT MILITARY ARCHITECTURE  *      ™   @“th century
forts not belonging to the Rajput clan such as Kumher,
Since Rajasthan has more than hundred forts, Wier, Deeg and Lohagarh in Bharatpur, Akbar’s Fort in
fortresses, castles and watch posts of varying scale, Ajmer, Fatehpur under Kayamkhani Nawabs and few
     }  )         ) )         
the key characteristics of Rajput military architecture elements of a citadel as formed in major Rajput
that are integral to the making of a Rajput Fort for ˆ  )             \’ 
further selection:  )       >     ='
x Rajput military architecture recognises the forts characteristics of Rajput military architecture.
located on hills or ‘Hill Forts’ as the most superior
mode of defence. This key concept of Rajput ADAPTATIONS TO THE PHYSIOGRAPHIC
military architecture is evident in the location of TERRAIN FOR DEFENCE
maximum forts in Rajasthan on hills, hilly terrain,
outcrop or an elevated mound. The landscape of The earliest Hindu treatise of Arthashastra by Kautilya,
>          ) written between fourth century BC and second century
every hill as quoted by several authors (Misra AD, prescribes four primary types of forts, namely,
1985; Sarkar 1984). This fact applies even to the hill fort, water fort, forest fort and desert fort. The
typology of few ground forts observed in a particular textual treatise in later periods in Indian history further
physiographic region of arid plains in Rajasthan such extend these four basic types into more types based on
as Nagaur, Junagarh, Fatehpur and Lachmangarh addition of earthen embankments and human elements
which are located on the highest mound or elevation to include-earth fort, i.e., fort on ground or plain and
      (   human fort, i.e., fort protected by an army of men. The
x Rajput rulers built several forts with the purpose            
to control the conquered kingdoms, for which typology of forts as per ancient Indian treatises such
 )   )        as Arthashastra by Kautilya and Manusmriti by Manu
interconnected served to be useful and to serve as a from 350 BC onwards.
citadel and protect local inhabitants of surrounding
settlements during need. Though important as Reinterpreting these ancient treatises, the 15th century
strategic military centres, these forts also served text Raj Vallabh that was prevalent in Rajasthan also
as residential headquarters of the rulers as well as      '       
towns with markets and houses of civil population. categorised as the best typology of forts. The four
Hence, a typical Rajput Fort primarily comprises of basic types of forts are also equated with a parallel
four parts: categorisation of forts based on physiographical terrain
 Royal quarters for the ruler and the ladies and manmade features. For example, a water fort as
80 Challenges of Serial Nominations

           >!  $ 

prescribed in the texts is a fort surrounded by sea or semi-arid desert region. The Rajput fort typologies
river/s as a defence mode yet, it can also be a manmade as per adaptations to the physiographic terrain can be
   )          categorised into seven types:
Similarly, the hill fort type variations (in textual treatise x hill summit fort
and in practice) are recognised by the location of fort x hill slope fort
on a summit of a hill, on the hill slope or in the valley x hill valley fort
showing adaptability to various forms of hilly terrain x hill forest fort
(Nossov, p. 8-9; Sarkar, p. 146). x hill water fort
x hill desert fort
While it is useful to refer to the prescribed models in x ground fort (elevated)
the treatise to some extent, the Rajput fort typology
needs to be recognised as per its adaptation of the In total about seven primary typologies of Rajput
 '         )  . Forts are observed in the seven physiographic zones
The Rajasthan region is roughly divided into two of Rajasthan. The most outstanding adaptations
parts by the Aravalli mountain range; the eastern, that to the terrain of a type for defence in a particular
is, hilly, fertile and semi-humid and western arid and physiographic zone are observed in 13 of the 24 forts.
 Challenges of Serial Nominations 81

DISCUSSIONS WITH THE ADVISORY ‘unique’. But the particular manner in which Rajput
MISSION: NOVEMBER TO JUNE 2012 architecture was eclectic together with its degree of
(       '   J 
The State Party presented an overview of the process architecture, do make it distinctive.
for the selection of component sites for the series x Sacred: It was observed that many if not all the
of Hill Forts and the criteria selected, based on the selected sites include temples or other sacred
original nomination. It explained how from an initial buildings, not merely as adjuncts to the palaces
listing of all major forts in Rajasthan, a group of 24 and other settlements but often predating them,
had been chosen for further study, shortlisted to 13, and outlasting them in use. The fact that Rajput hill
  )           forts are also sacred sites was deemed to be another
)        %!~     distinctive feature.
x Urban settlements: Most forts were designed to
The members of the ICOMOS mission held to the view protect the populace and not only the court and
that while it was likely that all of the forts included military guard. Many were of enormous size, with
might contribute to a series that could demonstrate walls extending to over 20 kilometres. Most had
%!~  )    %!~    had extensive settlements within the walls, some
>    )         of which have persisted to the present day. These
residential and sacred elements went beyond the
This was followed by a joint discussion on the expected military functions of forts. In some cases
                there was also a mercantile element, as the forts
forts in Rajasthan. While the discussion drew on ideas were centres of production and of distribution and
and information already contained in the original trade that formed the basis of their wealth.
proposal for nomination and accepted all values of
      )        The combination of these four attributes was seen as
approaches and altered emphases that would more the basis of the potential OUV of Rajput hill forts,
clearly and emphatically highlight the potential OUV             
of a series of sites, and how a selection could be made               ( 
 ' (    ='         one or more of the attributes in an exceptional way.
        (    )  
attributes in an exceptional way.   )            *  
and several potential sites including Jaisalmer,
The key attributes that distinguish Rajput hill forts were Mehrangarh, and Jaigarh as possibilities for inclusion
deemed to fall into four main overlapping categories in a serial nomination in order to ascertain whether and
  (        '           
x Physiographical:The forts are adapted to and sites were deemed to do, albeit in differing ways
optimise various kinds of hill terrain, including the and to varying degrees. As important to the structure
summit and the slope of semi-arid hills, forested of a serial nomination was to establish what each
hills, desert hills and hills protected by water. There site brought uniquely to the series or brought to an
are several aspects to the adaptation and optimisation exceptional extent, to establish the necessity for its
of the sites, which include military matters, strategic inclusion as an essential addition rather than merely a
planning and the collection, storage and distribution replication of attributes already found elsewhere.
of water.
x Centres of power: The forts have strong The main conclusions and proposals for re-focusing
associational values as centres of Rajput power the nomination dossier were that the following forts
and control, as centres of Rajput courtly culture                 
and patronage, and as former centres of learning,            *  ' 
art and music. The forts, together with the palaces follows, taking each fort in turn:
and other buildings they contain, all embody this x Chittorgarh:   *         
power and courtly culture in Rajput architecture. The 2 makes it distinctive from the other forts. As the
vocabulary of architectural forms and of ornaments former capital of the Sisodia clan and the target of
shares much common ground with other regional three famous historical sieges, the site is strongly
styles, such as Sultanate and Mughal architecture, so imbued with associational values attaching to Rajput
it might be an exaggeration to call the Rajput style history and folk lore. Furthermore the sheer number
82 Challenges of Serial Nominations

Fort typologies and adaptations in the physiographic terrain

S. No. Name of Fort Strategic location for defence Physiographic Zone
1 Kumbhalgarh Hill Slope (on several hill ranges)
Outstanding use of the concentric circles of hill ranges to locate and
control the fort. Structures inside are spread on natural contours and
slopes across the terrain
Aravalli Range and
2 City Palace, Hill Valley with Water (lake)on one side Hilly Region
Udaipur
3 Basantgarh* Hill Slope
4 Achalgarh* Impressive use of the Hill slopes for laying of the fort walls

5 Chittorgarh Hill Summit

One of the most strategic fort location on an isolated rocky plateau of
monumental scale with an area of 340 hectares on the summit
6 Mandalgarh Hill Summit (Plateau)
7 Amber-Jaigarh Hill Valley
Eastern Plain
Outstanding use of the hilly terrain to locate palace areas of Amber and
the town completely protected with watch posts on surrounding hill ranges
and Jaigarh on summit for protection
8 Bayana, Bharatpur Hill Forest
9 Shergarh, Dholpur Hill Summit
10 Ranthambore Hill Forest
Outstanding use of the steep and almost vertical hills of Thambor as
North Eastern
precipices for defence, additionally protected by one of the thickest forest
Hilly Region
areas
11 Bala Kila Hill Forest
12 Gagron Hill Water
Outstanding use of the hilly outcrop completely protected on three sides
by rivers with creation of a water moat on the fourth side
13 Taragarh, Bundi Hill Valley
South East
Outstanding use of the hill ranges and lower valley areas with palace
Rajasthan Pathar
areas of Bundi and town in the valley completely protected with watch
posts in surrounding hill ranges
14 Shergarh, Baran Hill Water (one side)
15 Bhainsoragarh Hill Water (three sides)
16 Jaisalmer Fort Hill Desert
Outstanding use of a triangular hilly outcrop on the desert to create an
impregnable desert fort
Sandy Arid Plains
17 Junagarh, Bikaner Ground (elevated)
18 Siwana, Barmer* Hill Summit
(Impressive use of the Hill crest for laying of the fort walls)
19 Bhatner Fort Ground (elevated) Ghaggar Plains
20 Jalore, Pali* Hill Summit
(Impressive use of the Hill crest for laying of the fort walls)
21 Nagaur Ground (elevated)
22 Taragarh, Ajmer* Hill Slope
Semi Arid
(Impressive use of the Hill crest for laying of the fort walls)
Transitional Plains
23 Mandore, Jodhpur Ground (elevated)
24 Mehrangarh Hill Summit
Outstanding use of the steep and almost vertical hills as precipices for
defence

The most outstanding adaptations to the terrain of a type for defence in a particular physiographic zone are observed in 13 of the 24 forts as indicated
in bold. *Though these forts exhibit excellent adaptation to the terrain, they are not as extant as other forts marked for their outstanding adaptations and
    "       "    
 Challenges of Serial Nominations 83

from it having been constructed in a single process

  ‚   &    '&    
and (apart from the palace of Fateh Singh, added
pertaining to particular physiographic features and some
later) retains its architectural coherence. Its design is
general conclusions can be made in this regard. The
attributed to an architect known by name-Mandan,
Western Plains (desert region) have hill fort on rocky
who was also an author and theorist at the court of
outcrops or ground elevated forts. The Aravalli Hill
Rana Kumbha in Chittor, another fort in the series.
Ranges in Central Rajasthan that divide the State into
This combination of factors is highly exceptional.
two distinct geographical regions have best examples
x Ranthambore: Its distinctive contribution arises
of hill fort adaptations on slopes. The Eastern Plains
from it being the only forest fort included in the
area in Rajasthan has hill forts in valley locations and
nomination. In addition, the remains of the palace
hill forest forts while the South-eastern Pathar shows
of Hammir, if taken to be authentic, are among the
predominance of hill water forts. It may also be noted
oldest surviving structures of an Indian palace.
that ground elevated forts do not exhibit any outstanding
x Gagron: Its distinctive contribution to the series
adaptations for defence to the terrain as these forts
arises from it being the only river-protected fort
primarily depended on military architecture of the fort and
included in the nomination. In addition its strategic
the manpower of army.
location in a pass in the hills gave it enhanced
          
and variety of architectural remains of early date, x Amber-Jaigarh:       )  
ranging from the eighth to the 16th centuries, mark it Jaigarh is included as part of the complex, as that
out a site of exceptional importance, with only a few part performed the major military and protective
Indian forts that are comparable. role. Its distinctive contribution is the representation
x Kumbhalgarh: Its distinctive contribution arises of a key phase, i.e., 17th century, in the development

Map showing distribution of forts with outstanding adaptation of physiographic terrain for defence and shelter
84 Challenges of Serial Nominations

Gagron

Ranthambore Amber
 Challenges of Serial Nominations 85

Jaisalmer

contained within it from the outset, still inhabited

today, and the group of Jain temples, make it an
important, even unique in some respects, example of
a sacred and secular urban fort.

The discussion also covered some other conspicuous

   >    '        
some or all of the attributes might have merited
inclusion. It was felt that if they were not to be
included, the reasons for their exclusion should be clear
and apparent. Thus, the forts of Junagadh in Bikaner
and Ahichhatragarh in Nagaur may be excluded as
they are built on level terrain and are not hill forts.
Mehrangarh (Jodhpur) is built on a hill but unlike those
suggested for the revised nomination it never included
Ratan Singh Kund at Chittorgarh a substantial settlement for a section of the civilian
population, being essentially a citadel for the protection
of a common Rajput-Mughal court style, embodied of the court and its guard.
in the buildings and gardens added to Amber by
Mirza Raja Jai Singh I. The six forts proposed or recommended for inclusion
x Jaisalmer: To be added to the nomination. It is in a revised nomination thus were considered to form
the only example included in the nomination of a a complete and coherent group that had the potential
hill fort in desert terrain. The extensive township to demonstrate OUV as a series through representing
86 Challenges of Serial Nominations

all the essential attributes of Rajput Hill Forts in an MANAGEMENT FRAMEWORK FOR THE
exceptional way. The mission considered that there SERIAL NOMINATION
would be no reason to exclude Jaisalmer from the
series if conservation work was incomplete, provided The overall management of the six properties is steered
a clear programme of work could be set out. Indeed by the State Level Apex Advisory Committee, which
it was preferable that this work was undertaken with was established through Order A&C/2011/3949 on
  ) May 11, 2011. It is chaired by the Chief Secretary of
Rajasthan and comprises members of the concerned
The six sites selected during the discussion could be ministries, namely Environment & Forests, Urban
  (   ='      > ?    Development and Housing, Tourism, Art, Literature
and to cover all the main physiographical terrains of & Culture, Energy and various representatives of the
hill forts. Furthermore the mission considered that each heritage sector including the ASI. The Apex Advisory
of the six sites demonstrated at least one of the key Committee meets on a quarterly basis and is designed
      *  '   >    to constitute the overall management framework of
inclusion in the series. Overall all the six sites were the serial property, guide the local management of
together necessary to demonstrate the potential of a the six serial components, coordinate cross-cutting
series to justify OUV. initiatives, share research and documentation, share

Kumbhalgarh
 Challenges of Serial Nominations 87

conservation and management practices and address the risk preparedness, and livelihood generation for the
requirements of common interpretative resources. local population, will be completed by end of 2013.
The management plans are currently in the process
In order to implement the recommendations of the of revisions and further detailing through six District
Apex Advisory Committee, the Amber Development Level Committees.
and Management Authority (now Rajasthan Heritage
Development Management Auhtority), acts as an CONCLUSION
overarching authority for management implementation.
          '  $  The Hill Forts of Rajasthan was inscribed as a World
Secretary of the Government of Rajasthan dated Heritage Site in June 2013 and the World Heritage
October 14, 2011. Committee asked for a State of Conservation Report
to be presented for the World Heritage Session
There are management plans designed to cover the  \]@F     '     
  \]@@  \]@F      *    the additional sixth fort of Jaisalmer that is facing
Jaisalmer, the management plan for the property serious conservation issues which are currently being
along with sub-plans including visitor management, addressed by the State Party.

Acknowledgements and Company, New Delhi. Sultanate, Osprey Publishing, Oxford.

This is to acknowledge the contribution of * Fass, V 1986, The Forts of India, Harper * Sarkar, JN 1984, The Art of War in Medieval
members of the Working Group of the Advisory Collins Publishers Ltd., London India, Coronet Books, New Delhi.
Committee on World Heritage Matters including * Hooja, Rima 2006, A History of Rajasthan, * Schromer, K, Erdman, JL, Lodrick, DO
Amita Baig, Jyoti Hosagrahar, Janhwij Sharma, Rupa & Co., New Delhi. & Rudolph, L I (eds.) 1994, The Idea of
Yaaminey Mubayi besides the authors of * Hooja, R, Hooja, R & Hooja, R 2010, Rajasthan: Explorations in Regional Identity:
   @ ‚     ‡  Constructing Rajpootana-Rajasthan, Rawat Vol. I and II, Manohar Publishers and
of selection of components for this serial Publications, Jaipur. Distributors, New Delhi.
nomination. Representatives of ASI including * Kapoor, P & Singh, K 2007, Royal * Singh, C & Mayaram, A 2002, Protected
SA, ASI Jaipur Circle and Government of Rajasthan, Roli Books, New Delhi . Monuments of Rajasthan, Jawahar Kala
Rajasthan including Principal Secretary, Art * Mathur, LP 1989, Forts and strongholds in Kendra in Association with Publication
and Culture and Chief Secretary among others, Rajasthan, Inter-India Publications, New Scheme, Jaipur.
Archaeology among others who supported this Delhi. * Tillotson, GHR 1987, The Rajput Palaces:
process of dialogue with the Advisory Bodies. * Michell, G & Martinelli, A 1998, The Royal The development of an architectural style,
Special Thanks to the DG, ASI; Secretary Palaces of India, Thames and Hudson, 1450-1750, Yale University Press, New
and Joint Secretary, Ministry of Culture, India London. Haven.
and Permanent Representative of India for * Mishra, RL 1985, The Forts of Rajasthan, * Tod, J 2002, Annals and Antiquities of
supporting this nomination. Kutir Prakashan, India. Rajasthan, Rupa & Co., New Delhi.
* Mishra, RL 2007, Saga of Forts &
Bibliographic references    „#ˆ &  
* Baig, A 2010, Forts and Palaces of India, their Resplendent Glory, B R Publishing
Om Books International, New Delhi. Corporation, Delhi.
* Bhattacharya, M 2008, The Royal Rajputs: * Nossov, K & Delf, B 2006, Indian Castles
Strange Tales and Stranger Truths, Rupa 1206-1526: The Rise and Fall of the Delhi
88 Challenges of Serial Nominations

Evolving models of site management

in the Indian Subcontinent
‘An effective management system depends on the type, characteristics and needs of the nominated
property and its cultural and natural context. Management systems may vary according to different
cultural perspectives, the resources available and other factors. They may incorporate traditional
practices, existing urban or regional planning instruments, and other planning control mechanisms,
both formal and informal. Impact assessments for proposed interventions are essential for all World
Heritage properties.’ (Para 110, Operational Guidelines for the Implementation of the World Heritage
Convention, 2013)
Managing World Heritage properties in a complex network of multiple jurisdictions within
growing Indian and South Asian cities, is a daunting task. The articles included in this
section cover a range of approaches to management such as documentation, research,
interpretation, conservation and monitoring, recognition of traditional continuity, involvement
of community in management, buffer zone issues related to real estate, risk management,
impact assessments and, preparation plus effective implementation of management plans.

Source: Saptarshi Sanyal

 Evolving Models of Site Management in the Indian Subcontinent 89

Chhatrapati Shivaji Terminus,

Mumbai
Managing a World Heritage Site
9,.$6',/$:$5,

ABSTRACT

Getting a World Heritage site nominated is a moment of pride and joy,

but it also brings in the responsibility of commitments for its long term
protection. The Chhatrapati Shivaji Terminus (CST) station is an excellent
case study, which reveals the opportunities and threats that an individual
site is exposed to in an urban setting with high real estate development
pressures and being one of the most functional World Heritage site in the
world. It also illustrates that if the plans and commitments laid out during
the process of World Heritage nomination are carried out as promised,
Vikas Dilawari is the Head of Conservation then the site can be looked after well.
Department, Kamla Raheja Vidyanidhi Institute
for Architecture and Environmental Studies, INTRODUCTION
Mumbai. He is a conservation architect;
several of his conservation projects have The World Heritage site nomination process is an emerging specialised
 # ˆ #@                '    )    
past decade. Vikas is currently a co-opted view of the varied challenges and opportunities it offers in context of
member of the Mumbai Heritage Conservation developing nations. This is different from the perspective of developed
Committee and a member of the Interim nations where conservation has been integrated into main stream urban
Executive Committee of ICOMOS-India. policies and there is provision of specialised funding as well as legal
90 Evolving Models of Site Management in the Indian Subcontinent

frameworks to encourage its implementation. In India, failed since it initially lacked professional inputs. Thus,
slowly and steadily the government is also involving the Indian National Trust for Arts and Cultural Heritage
itself in the nomination of World Heritage, as seen from (INTACH) Mumbai Chapter was recommended
the support of nomination of World Heritage cities by International Council on Monuments and Sites
including Ahmedabad, Delhi and Mumbai. However, (ICOMOS) along with an expert team to undertake this
at the same time, other government departments, work. On the behest of the Central Railways the team
particularly those responsible for Urban Development helped in preparation and submission of the nomination
have been drafting polices for redevelopment that are dossier to UNESCO World Heritage Centre at Paris.
often detrimental to the efforts of nomination itself. INTACH Mumbai Chapter had previously prepared
the Elephanta Caves Management Plan. The CST main
India like so many other South-east Asian countries building had undergone restoration and repairs several
is at a cross-roads where it has to choose between times in the past two decades and its conservation has
the path of conservation and sensitive development raised several important questions regarding varying
in place of insensitive redevelopment. In this aspect,           
World Heritage site nominations can help in achieving raises the issue regarding independent monitoring of
the balance. World Heritage sites if integrated within conservation work.
the master plans and planning process of cities can
be used as asset and capitalised accordingly.Varying THE CHANGING CONSERVATION
protection can be ensured to the main site and its buffer SCENARIO IN MUMBAI
zone like the proverbial ‘carrot and stick’. This way,
citizens can take pride, bring awareness and capitalise The conservation scenario in Mumbai has also changed
on the cultural potential of World Heritage sites and at drastically in the past decade. Mumbai, which was
the same time facilitate development. Getting World the city that pioneered heritage regulation in the
Heritage site status helps in building an international country in 1995, diluted its own laws in 1999 through
pressure to ensure that commitments given by the State      )       
Party are not diluted as was seen with CST Railway circular in 2009 from the Urban Development (UD)
Station previously known as the Victoria Terminus Department all Cess Properties (buildings built prior
(VT) Station. to 1969 and which pay cess or tax to the government)
and Cess Grade III Properties in the buffer zone of
The nomination dossier for the CST Station was the CST could undergo redevelopment.2 These were
prepared in 2003 and in 2004, the same was declared as also removed from the purview of Mumbai Heritage
a World Heritage site. A decade is nearly over and it is Conservation Committee (MHCC) and redevelopment
)  (           could be approved by the Municipal Commissioner’s
it faced. This is the only other individual 19th century permission for heights above 24 metres. This change
Gothic Revival building apart from Westminster Palace in legislation resulted in a lot of redevelopment,which
to be listed as a World Heritage Site.1 This would also was a direct threat to landmark heritage sites such as
perhaps be most frequented or used World Heritage site the urban context of CST. Eventually, the buffer zone
in the world since it is a functional railway terminus guidelines of the CST as a World Heritage site came to
building, located in one of the most expensive real its rescue. Now, only operational buildings are allowed
estate areas in the world. Hence the challenges and in the area and the building height of a new structure
opportunities for this site are very different from other cannot be greater than the height of the concourse
World Heritage sites. roof ridge, thereby retaining the urban setting and the
landmark quality of the site.
BACKGROUND OF THE NOMINATION
PROCESS OF CST The State Government did not initially gazette the
additional listed buildings and precincts despite
The Indian Railways became amongst the early patrons             '
of conservation in India and undertook the decision   '  ' \]@\ '  „  J)
to self-nominate the CST Station as a World Heritage J   $  „J$   ' ( 
Site. The Railways had been inducted in the process     (        
of World Heritage sites due to the inscription of the and development, especially from the perspective
Mountain Railways of India as a World Heritage site of governance. It is here that World Heritage site
in 1999. However, the attempt of nominating the CST nominations and inscriptions can assist the site’s
 Evolving Models of Site Management in the Indian Subcontinent 91

conservation through building international pressure       *     

via UNESCO. community that commissioned and contributed to this
)      
CST AS DESCRIBED IN THE
NOMINATION DOSSIER

  $        ' )    

             
   ~    Q       J)
both in grandeur and in detailing as compared to other
Gothic Revival buildings in the city and the country.
Its Outstanding Universal Value (OUV) is encapsulated
in both in its exteriors and interiors and it still has its
authenticity preserved to a large extent. The CST is
a commercial palace that epitomises the glory and
romance of the railways. It was a commercial venture
  * )'       
for India. The building represents British architectural
skills combined with unique Indian craftsmanship,
which is evident in the abundant carving and other
stylistic embellishments. It was seen at the time as a
statement of Indo-British endeavour. Rudyard Kipling’s
father, Lockwood Kipling, who was responsible for
much of the sculptural embellishments, was actively
promoting Indian craftsmanship. The statue of Progress Newspaper coverage on the Railways requests to UNESCO to
on top of the dome is a tribute to the vision of those reduce the extent of the buffer zone of CST

The location of Chahatrapati Shivaji Terminus in Mumbai

92 Evolving Models of Site Management in the Indian Subcontinent

COMPARATIVE ANALYSIS PRESENT SCENARIO

CST is rated as one of the six best railway terminuses Over the past few years, CST Station has been in the
in the world; the other being St. Pancras Station news as the Railways are keen to develop the buffer
in London, Penn Station in Philadelphia, Helsinki zone for commercial activity with an iconic tower.
Railway Station, the Gare (now Musee) D’Orsay in Proposals for this were submitted to the local heritage
Paris and the Amsterdam Main Railway Station. It committee but these were not granted permission. This
is amongst the three best buildings designed by the brought up a dilemma for the Railways to either retain
British in India, namely the Victorian Memorial in World Heritage status and curb development or forgo
Kolkata and the Viceroy’s Residence in Delhi. With the the coveted World Heritage inscription. Furthermore, a
development of air travel, railways were affected all few of the repair and restoration works undertaken also
over the world and many stations in the United States, came under criticism as these had not been carried out
such as the Union Terminal-Cincinnati and others in   '}           
Europe like the Musee D’ Orsay, Paris, declined due to glass in place of the authentic lead light stained glass
fall in railroad passengers. and so on.

This led to the disuse of the terminals and their Being a functional building, housing an important
)       ?    @\F lifeline of the city, the CST’s main function is to cater
years the CST is very much a bustling station and in to the users. With the increase in population, several
             $  other modes of transport are likely to be integrated to
Railways. In comparison with other railway stations of the main station including the metro and mono-rail
Europe and United States it is still one of the grandest services. These are most likely going to further add to
stations and perhaps the only one to have a dome. The the challenges facing the Station.
covered station caters to the one of largest commuter
populations in the world, ranging from 3 to 3.5 million The recent terrorist attack on 26th November, 2008 in
a day. which several people were killed and another iconic

CST in its urban context

 Evolving Models of Site Management in the Indian Subcontinent 93

heritage building in Mumbai- the Taj Mahal Hotel These committees are essential to ensure the smooth
was damaged, exposed a new threat that needs to be implementation of the management plan for CST. It is
    =      ' essential to learn that all procedures of the commitment
World Heritage site in India. Though the CST was not given while nominating are followed.
damaged, the threat of terrorism is one that needs to
examined critically. GUIDELINES FOR BUFFER ZONES

The nomination dossier that was prepared for CST Various guidelines to regulate the land-use and building
addressed many of the issues and concerns of      |    
site management as stipulated in the Operational
Guidelines. It is interesting to see that the protection Buffer Zone I (Sub-precinct 11)‰   ' & 
management did address several issues, but was unable Naoroji Road on its West, W. Hirachand Marg on
to safeguard the likely threats of development pressure South, P D’Mello road on East and the railway tracks
because of weak implementation. Had the systems on the North. The approximate area of this sub-precinct
and recommendations been implemented the situation  @ŽF     |  )'   
would have not have become so complicated. While          Q ƒ %
Railways and local authorities were contemplating new (Serial Number 258) which is a Grade I building,
development in the buffer zone and proposed reduction Fort St. George Hospital (Serial Number 210) which
in the buffer zone boundary, they were subsequently is Grade III and Fragment of Old Fort Wall, (Serial
advised to withdraw this proposal of boundary Number 240) which is also Grade I. This area has been
)   '  J   '  $   \]@\          )   > 
is recommended that Railways should constitute a being to protect the CST from haphazard insensitive
stakeholders committee. )  )  #    '  
Fort George Hospital complex which has abundant
The nomination dossier had clearly stated formation of open space for development.
the following committees:
x High Powered Steering Committee (HPSC): The The guidelines are as follows:
formation of the HPSC is essential for reviewing x The Development Plan of 1981-2001 has earmarked
any mega-plans around the CST, including its buffer the CST area as C1 as commercial area this needs
zones and outlining the broad principles and policies to be changed to an operational functional zone
to protect the building and the context within which and not a commercial. No commercial activities are
it is situated. permissible
x Formation of an inhouse Maintenance Committee: x This should be ideally a no development protective
The committee will consist of Senior Deputy zone. However, if there is any proposal for public
General Manager, Chief Engineer– Works, Chief use then it is proposed to be restricted as low rise
Electrical Engineer – General, Chief Signal and development only (not higher the than the concourse
Tele-communication Engineer, and Chief Public ridge top or till the ridge level of the adjoining
  %           residential quarters of the hospital whichever is
committee will also include a trained conservation lower). Strict monitoring is essential for all proposed
architect as a permanent invitee. Depending upon the construction
necessity, an architectural historian, urban designer x Grading of Fort St. George Hospital is to be changed
and a structural engineer can be consulted to monitor from grade III to Grade IIB and the whole complex
the work. The Railway authorities have agreed that a is to be included in the grading as its present
†   *        delineation in unclear whether the hospital or the
carry out any major works or interventions. complex building is listed.
x The Executive Committee for day to day x All encroachments abutting the heritage structures
maintenance: The day to day maintenance of this on P D’Mello Road and on rear side of General Post
building is also a major activity. This committee will %    )          
undertake periodic inspection every two months. another location if they are legal and footpaths are
To ensure proper conservation during day to day to be restored back to its original condition. Grade I
activities a list of ‘do’s and don’ts’ shall be circulated heritage site are to be free of any encroachments.
for the guidance of the executive committee. x Removal of all hoarding in these precincts. No new
hoarding permissible.
94 Evolving Models of Site Management in the Indian Subcontinent

x Colour scheme of non-listed buildings are strictly the setting up of another centre in Jabalpur, leading
controlled, neutral colours like white or matching                
stone colour of adjoining heritage structures are The Central Railways have been fairly effective in
permissible subject to permission from Local removing the unwanted encroachments in its veranda
Stakeholder Committee and MHCC. and the additional blocks including the covered car
x Any new development shall be predominately tiled park canopies in its front façade.
  ŽF”   (    )  ))
  \F     ' (  \F” This helped in regaining the lost visual linkages of the
The new development is to be sensitive to existing building. The Railways have opened a Rail Museum
heritages structures in mass, scale, architectural open to public and guided heritage walks have also
fenestration, and typology. been organised. These are small but positive step in
x "          ' )   bringing awareness and taking pride in maintaining the
in appearance, colour and texture. OUV of the site.
x Greens open space is be retained, no cuttings of old
trees allowed. CONCLUSION
x !          †  
this zone. This is to be designed by professional During the nomination process, there is a commitment
designers and is to be approved by MHCC to the long term management of the heritage site which
x Listed buildings require skilful repairs with respect needs to be maintained even after the site’s inscription.
to authenticity. It is hoped that the commitments given in the World
x Any development or construction in this area Heritage site nominations are adhered by all parties,
requires Local Stakeholder Committee’s approval more so by the Railways since this will go a long way
and then approval from MHCC. to preserve this extremely important icon of the city
and can add and improve the quality and infrastructure
Buffer zone 2 (Railway land): This belongs to the of the city.
railways, the proposed guidelines are similar as those
of sub-precinct 11 (described above).The idea is to It is also hoped that the serial nomination proposed in
avoid commercial, high rise development that shall CST dossier is reviewed for any future nominations on
congest the area, or obstruct or distract the view of CST extensions of this area. The growing needs of the city
from a distance or any location as a result be potential such as improved transportation in different forms like
threat to the CST. The present barren open space on additional metro line need to be integrated in a manner
the East can be suitably landscaped for public purpose that would not diminish the OUV and security threats
rather than leaving it barren and unattended. should be analysed carefully well in advance. World
Heritage site nominations are an excellent opportunity
OPPORTUNITIES and can be tapped to spread awareness and protect
our universal heritage in absence of strong protection
A blessing in disguise was the decentralisation of the mechanism.
Central Railway Headquarters from Mumbai with

Bibliographic references by Dr Colin Cunningham – Architectural respect of redevelopment of plots situated

ASI 2004, Nomination dossier for Chhatrapati Historian, UK. in Heritage Precincts or proposed precincts
2
Shivaji Terminus, UNESCO World Heritage Heritage regulations for Greater Bombay (Section 33 (6),(7),(8),(9),(10)).
Centre, Paris. 1995. Govt of Maharashtra UD Department
{‰  [\\\!&& ‚  
Notes Section 33 (6), (7), (9)) and then in 2009 as
1
As mentioned in his email to the author per another circular titled revised policy in
 Evolving Models of Site Management in the Indian Subcontinent 95

World Heritage and

Archaeological Excavations
Fatehpur Sikri
..08+$00('

ABSTRACT

World Heritage sites supply large quantum information to an inquisitive

researcher. With enough training and initiation into the technical but
mute language of architecture, one could make each stone speak about
the social, economic and cultural condition of the past. Thus, the dim and
distant past would come alive and one would be able to relive the magic
 ">         
excavation and researching literary sources and pictorial representations
helped in revealing the Ibadat Khana at Fatehpur Sikri, the location of
which had eluded researchers and historians for decades. These kind of
revelations strengthen the authenticity and integrity of a World Heritage
K K Muhammed retired as the Superintending Site and contributes to its Outstanding Universal Value (OUV).
Archaeologist, Delhi Circle with the ASI and,
is noted for leading nationwide challenging INTRODUCTION
restoration activities at heritage sites across
Madhya Pradesh, Bihar, Uttar Pradesh While walking around landmark monuments that are also World
and Delhi. Additionally, he initiated informal Heritage sites such as Bhimbetka, Champaner, Fatehpur Sikri, Hampi
educational sessions at kuccha schools across and Mahabalipuram to name a few, little do one realise that the earth
the ASI sites in New Delhi for children of the around these heritage structures is soaked in history and a major part
restoration laborers. of this history and its golden moments is still buried under inaccessible
96 Evolving Models of Site Management in the Indian Subcontinent

layers. These buried treasure troves can potentially Coloured Pottery from 1800-1600 BC, Black and Red
reveal a wealth of information after being excavated from 1600-1400 BC, Painted Grey Ware from 1400-
  '       =  800 BC and Northern Black Polished Ware from 800
what he digs out is not simply earth, bone pieces, „$+@]] „$         = 
pottery shreds and antiquities but stories of people thus providing much needed missing links in tracing
themselves and the lives that they lived. Since a the history of the site.3 In a remarkable excavation, in
major part of antiquities are related to common man, the year 2000, DV Sharma excavated a Jain temple
the archaeologist looks at the historic landscape,  _’ ™     *    
not only from the perspective of the ruler but also near Nagar Village and added another dimension to the
from the eyes of the masses who were the real history of Fatehpur Sikri. Carrying out the excavations
builders of civilisations. Hence, in order to present led to outstanding discoveries that added many more
a comprehensive picture of any cultural landscape, unknown chapters to the history of the location.
exploration and excavation should be part and parcel Excavations in the core area have exposed the remains
of the attempt of every archaeologist, conservation of a number structural complexes such as minor
professional and heritage manager. haramsara (residence of the emperor’s principal
wives), houses of noble men, bazaar, hammams
Besides this, explorations and excavations often (bathhouse), stables, cheetah khana (shelter of tigers
enable an archaeologist to push back the history of the or cheetahs inside the palace area), the Ibadat Khana
monument and its surroundings by thousands of years. (meeting house to gather spiritual leaders) and a
It also enables him to retrieve many missing links that Christian chapel. Of these excavations, the discovery
are vital and open fresh vistas of interpretation and of Ibadat Khana, the hall of inter-religious discussions
understanding. The excavation carried out at Fatehpur and the Christian chapel are the most important. The
Sikri, from 1976 to 1999, jointly by the Archaeological      '    ˆ  
Survey of India (ASI) and the Aligarh Muslim been explained in further detail.
University brings the vital importance of this aspect
into sharp focus.1 UNFOLDING THE STORY OF THE
IBADAT KHANA
EXCAVATION AT FATEHPUR SIKRI
The Ibadat Khana, constructed by Akbar at Fatehpur
Earlier it was believed that the history of Fatehpur Sikri Sikri in the year 1557 has always fascinated scholars
dates back to the 10th and 11th century, when Sikrawar and rulers alike (Lowe 1973; Beveridge 1936; Beveridge
Rajput’s built a fort there. But the exploration of the 1977; Smith 1915; Smith 1917). This was the meeting
ASI, initially by JP Gupta and then by JP Srivastava has point and melting pot of divergent opinions on a
pushed it back to the Mesolithic period, that is, 7000 wide range of subjects, especially religion (Shea &
BC, when man was a hunter and gatherer. A number of Troyer 1843: Hoyland 1922; Pierre/ Du Jarric 1979;
rock shelters with beautiful prehistoric paintings have Afonso 1980). Akbar, possessed of voracious appetite
been located at Bandrauli, Madanpura, Rasulpur, Patsal for learning, was a keen and appreciative student of
and Chudiyari; the surrounding villages of Fatehpur comparative religion.4
Sikri by Giriraj Kumar, Prabhakar and Pradhan. These
paintings were executed in dark chocolate pigments   †           
      )       +         '    
like animals. Hunting scenes provide an insight in to Most of the scholars favoured the location of it among
the life of prehistoric man. These sites have yielded the standing buildings at Fatehpur Sikri, of course,
few microlithic2 tools that might have been attached to     '         
wooden handles to serve as points for arrows. such as Smith (1894, p. 22), Percy Brown (1968 p. 96),
HG Keen and HR Nevill (1905, p. 255) considered
When I inspected these rock shelters and paintings in the single pillared chamber as Ibadat Khana while
1978, most of them were in a fairly good condition. But others like Saeed Ahmad Mararavi, Athar Abbas Rizvi
when the site was inspected the second time in 2002, and VJA. Flynn (1975, p. 42-44) debated its existence
most of the shelters were destroyed due to the rampant between Jama Masjid and the Haramsara. The latter
mining in the area. Thus the living evidence linking theory was based on fact that it was near enough from
Fatehpur Sikri with microlithic period was lost forever. the Imperial Palace to allow the emperor to come
The excavators were also successful in locating Ochre and go without much inconvenience and was close to
 Evolving Models of Site Management in the Indian Subcontinent 97

the new khankah       ' 

            =  ) $  
The question of the location was an intriguing one. The
probable location of Ibadat Khana could be deduced on
the basis of literary descriptions given by contemporary
historians like Abul Fazl, Badauni and Nizamuddin.
But literary descriptions have their own limitations.
They can be interpreted differently and sentences can
yield different meanings. Moreover, no amount of
study of recorded version of texts and meditation on
all the meanings that sentences are capable of yielding
could ever take us anywhere near the solution of the
problem. So, it was decided to give more emphasis on
an extensive archaeological exploration and excavation
of the place and use the literary data with caution. The
use of literary references with modern archaeological
techniques has not only solved the present problem, but
holds out the promise of having immense potential in
solving many of the apparently enigmatic questions in
Ibadat Khana before excavation. It was in the shape of a
medieval archaeology. mound with ten trees growing over it

A careful reading of two different passages from few rooms have been made against the southern wall.
Badauni and one passage from Nizamuddin helped The wall was completely missing on the eastern side
          ˆ  ' and only an excavation could expose its buried parts.
Smith, Percy Brown, Keen, Nevill, Nath and the local Away from all the four sides of the walls, in the centre
guides and also identifying it with the one pointed out of the quadrangle, a conical mound with ten full grown
by Mararavi. Badauni’s views (Lowe 1973, p. 200) trees could be seen. Prof. Rizvi and Flynn noticed
that Ibadat Khana was near the new palace, not within it, took its measurements and wrote about it as the
the palace and that after prayers the emperor would go probable place of Ibadat Khana. The fallen concrete
from the new chapel of Shaik ul Islam (Lowe 1973, roof of the structure along with few brackets that
p. 204) inside Jami Mosque and hold meetings in the originally supported the roof could be seen. On cutting
Ibadat Khana. This indicated that the Ibadat Khana down trees, clearing the over growth of shrubs and
was housed at a place that was not far from the Jami removing the fallen debris of fallen roofs, a structure
Masjid where the king could conveniently attend the shorn of its roof and walls, gradually started emerging
proceedings and Nizamuddin’s opinion of Ibadat Khana from the earth.
placed by the side of the noble palace, not within the
palace, together narrowed down to a site between the    *  *  )    †
palace boundary and the Jami Masjid. pyramidal structure of three terraces, diminishing in
size as it went up, with sitting arrangements on all four
The next stage in the process of the discovery was the sides of each terrace. The lower terrace measured 21.5
exploration followed by the excavation of the site. It square metres, the second 13.35 square metres and the
took me two seasons’ work, 1981-82 and 1982-83, to third one, 4.65 × 2.90 metres. Behind the top terrace
complete the excavation of the mound. When the site there is an ante chamber of 5.00 x 1.60 m, accessed
was explored, a boundary wall on the north, along with through a door. The structure was surrounded by a
Qibla5 wall on the west was noticed. The Qibla wall boundary wall made of rubble and lime covering an
 '      '   *  area of 48 square metres. The western portion of this
at the time of exploration. During the exploration,    '        
Prof. Rizvi and Flynn could also see only three arches. direction of Qibla, with only three arches extant now,
Since the third arch was bigger than the two, as per has the word Allah written in Arabic in stucco plaster
the architectural vocabulary of medieval period, it is on both sides of spandrels of the central arch. Above
certain to have two more arches on the other side also. this, there are decorated mouldings and beautiful
A close inspection of the wall revealed the traces of the interlocking tulips, picked out in white. The southern
two arches that had fallen down. On the southern side, side of it had a number of rooms of various sizes
98 Evolving Models of Site Management in the Indian Subcontinent

When an area of 5x5 metres was excavated over this mound, part of a platform could be observed

      '       But the question was how to go to the top of these
extant now. These rooms were allotted to important terraces. After closely observing the topography,
!)   =   6 whom the King invited when the area in front of the terrace was excavated,
to participate in the discussions at the Ibadat Khana. the original steps that enabled the participants to go
Badauni mentions the stay of Shaikh Zin Allah, son of up to the terraces were exposed. The excavated steps
Shaikh Muhammad Gauz in one of these rooms (Lowe measured 2.40 × 1.70 metres.
1973, p. 204).
EXAMINING THE LITERARY
We had already noticed that the eastern side of the DESCRIPTIONS
boundary wall had collapsed and the area levelled
up. However, it was felt that the foundation of the We had already seen that the excavated structure
eastern wall could be encountered, if the area is was a four sided pyramidical structure one of three
excavated. Here, as expected, the buried remains of the terraces, diminishing in size as it went up with sitting
extinct wall could be unearthed. The exploration and arrangements on all four sides. This was extremely
excavation exposed the following structures: helpful in verifying the veracity of the discovery. All
x The boundary wall along with its Qibla arches on the the contemporary historians who participated in the
western sides and buried part of the eastern wall. debates at Ibadat Khana stated that it was a building
x A step to go to the terraces. with four sides and during the discussion each group
x A pyramidal structure of three terraces, diminishing like Sayyids, Shaikhs, Ulemas and Amirs was allotted a
in size as it goes up, with sitting arrangements on all side by the Emperor. Badauni (Lowe 1973, p. 205) says
the four sides. (...) so his majesty ordered that the Amirs should sit on
x    )       * the east side, the Sayyids on the West, the Ulemas on the
stones which supported the door that provided access South and the Shaikhs on the North. His Majesty would
to the chamber. also go from time to time to these various parties and
converse with them and discuss philosophical subjects.
 Evolving Models of Site Management in the Indian Subcontinent 99

Abul Fazl (Beveridge 1977, p. 58-59) states: The paintings of Akbar Nama (Arnold & Wilkinson
To the delightful precincts of that mansion founded up on 1936, p. 6),7 a visual record of the Mughal reign,
truth, thousands up on thousands of enquirers from the drawn and painted under the personal supervision of
seven climes came with heartfelt respect and waited for the the king, who himself presided over various events
advent of Shahina. In the eastern chamber were the great depicted therein, is a valuable source not only for the
       =   understanding of Mughal society and culture (Smith
investigators, in the west those of lofty lineage and in the 1917; Wellenz 1952; Verma, 1978; Qaisar 1982; Sen
North Z of clear heart. 1984; Nizarni 1989) but also for the location and
           =
  *  )       '       )    = ")
provided by Badauni and Abul Fazl, two historic paintings, artists painted events that many of them had
characters who were regular participants in the witnessed. Even where the artists had not witnessed
discussions at Ibadat Khana. the incidents themselves, they were well familiar with
the premises and surroundings in which the subject
ANALYSING THE CHRONOLOGY OF THE of depiction had taken place. This period witnessed
STRUCTURE a change in Mughal painting for the depiction of
scenes and settings from ‘generic’ and ‘stylised’ to
In addition to the above mentioned points, Badauni architectural and scenic realism.
described the Ibadat Khana as a pre-Akbari structure
constructed by Shaikh Abdulla Niyazi Sirhindi, to Many of the structures at Fatehpur Sikri and Agra like
which Akbar had made some new alterations and Darbar-i-Am, Hathyapol and Hiran Minar are painted
additions, to facilitate the discussion. This offered us in Akbar Nama painting with architectural realism. In
  )     =      Hathyapol Painting of Fatehpur Sikri, many of the
of the excavated structure as Ibadat Khana was correct architectural elements that are even now insitu at the
or not. If the construction of the two structures of the site such as the stone paved pathway, waterwheels
same place belongs to two different periods, as said by that raised water to the top of the tanks from the
Badauni, there would be a corresponding difference in adjacent baoli (step well) and the two elephants that
the orientation of the two structures also. To verify it, I guarded the main entrance gate, have been painted
laid a cross trench between the pyramidal structure and with remarkable architectural realism. The painting
the boundary wall. On excavation, it was found that of Darbar-i-Am referring to Diwan-i-Am of Fatehpur
the orientation of the pyramidal structure was different Sikri where prisoners from Gujarat have been paraded
from the boundary wall, the Qibla arches and the cells is another example of architectural realism. In this, the
near the southern side of the boundary wall. A study of Diwan i-Am jharokha (overhanging enclosed balcony),
the foundation trenches of both the structures further    #)      (    
)      '  š  provide access to the jharokha have been shown with
arches and the cells belong to the group of pre-Akbari much accuracy.
structures by Shaikh Abdulla Niyazi and the pyramidal
structure was constructed by Akbar. Anyone familiar with the architectural styles of
Diwan-i-Am of Agra, Delhi, Lahore and Fatehpur Sikri
AKBAR NAMA PAINTING AND can easily identify it as that of Fatehpur Sikri. The
EXCAVATED REMAINS painting of Akbar’s victorious return to Fatehpur Sikri
after the conquest of Gujarat is another such painting
Were the evidences so far enumerated by us such as a where one can easily identify it as Fatehpur Sikri. The
pyramidal structure, four sides, two structures made depiction of Hiran Minar in this painting with its lower
at two periods enough to identify the structure as the platforms and the elephant tusks embedded into the
Ibadat Khana? These were peripheral and supportive body of the minar, which no other Mughal city could
         $  boast of, immediately helps to identify it as Fatehpur
evidence was still needed to clinch the issue. The Sikri. Fortunately the structure still stands in one
search in this respect was met with success. The piece. But one should not mistake the accuracy of this
direct evidence comes from the paintings of ‘Akbar architectural realism with the later day architectural
Nama’. This point requires little bit of digression and realism of Daniel’s etchings or Mazhar Ali Khan’s
elucidation. paintings. However irrespective of its limitations,
100 Evolving Models of Site Management in the Indian Subcontinent

Left: Ibadat Khana when the full mound was excavated. Compare components in
the photograph with those in the painting

Right: Painting of Ibadat Khana

1. Boundary wall, 2. Step, 3. Lowermost platform, 4. Middle platform, 5.Top
platform, 6. Door of antechamber, 7. Arches, 8. Dome
Emperor Akbar is sitting on the top platform (5). The middle platform (4) is shared
by Abul Faizal and Faizi, dressed in white and Father Rudolf Acquaviva from Italy
and Father Monserrate from Spain, dressed in black. The lowermost platform
(3) has been occupied by priests belonging to other religions
Source: © The Trustees of the Chester Beatty Library, Dublin

'             one excavated, diminishing in size as it goes up. In
researcher so that one can clearly identify the location the lower terrace, scholars can be seen in the thick of
and the structure. animated debates, some holding books while others
keeping it nearby. The matching excavated portion of
      )         the terrace measures 21.58 metres. The second terrace
development of human portraiture. Portrait makers is shown being shared by Abul Fazl, Faizi, Father
have painted Akbar in remarkable range of moods Rudolf Acquaviva and Father Antonio de. Monserrate,
 *    ) )  ) the last two clothed in black soutanes9 and clocks,
 ) )      )      (     )    ) = 
also discover him in vacant and pensive moods. Such of Persia, the corresponding excavated portion of this
portrayal of minute details of a personality and his terrace measured 13.34 square metres.
inner turmoil which calls for immense accuracy and
precisions had its direct positive impact on the further The third and top terrace is occupied by the Emperor
growth of architectural realism in Mughal paintings. Akbar who is in the gesture of receiving something
from Abul Fazl. The parallel excavated portion of the
One such painting from Akbar Nama8 presently terrace measures 4.65 x 2.90 metres. Behind this terrace
housed in Chester Beatty Library, Dublin, painted by is shown a door that gives entrance to an ante chamber,
Narsingh, the court painter, depicting a heated debate relating to the excavated portion of this ante chamber
in the hall of Ibadat Khana between Christian priests, that measured 5.00 x 1.60 metres. A step is visible to
headed by Rudolf Acquaviva and Muslim scholars, provide access to the terrace and the excavated step
remarkably tallies with the structure we excavated. measures 2.40 x 1.70 metres. The painting shows a
The similarity was so much that even the worst critic boundary wall beyond which there are two horses, three
would not ask for more proof. The painting shows a men and a small boy. This boundary wall measuring
pyramidal structure of three terraces, exactly like the 48 square metres is still extant, but the eastern part has
 Evolving Models of Site Management in the Indian Subcontinent 101

fallen down. When an excavation trench was laid down that rely on multiple sources of information, in parallel
there, the foundation of the fallen wall was exposed. to the physical excavations. The case of Ibadat Khana
The painting depicts three arches on the back side. Of      = *)      =
these three arches, two in full and one half broken are references from literary sources, chronology as well
still extant. Thus the similarity of the painting, with the as paintings from the Mughal period in which the
excavated remains has helped us in solving an elusive structure was depicted. The net result compels us to
problem that was defying solution and, in identifying review our opinion about Akbar Nama paintings and
the nursery of Indian secularism. look at them from fresh angle. This brings into sharp
focus the potential of Mughal paintings, as a powerful
CONCLUSION tool in medieval archaeology. The ultimate physical
revelations and the richness of meanings that the
The understanding of layers of built fabric below literary and pictorial representations add to these are
           *            '    ' 
pertaining to World Heritage sites, require processes OUV of a World Heritage site.

Acknowledgement x Arnold, TW & Wilkinson JVS (contributors) Jesuit Missions to the court of Akbar, Tulsi
All images for the article have been sourced 1936, The Library of A. Chester Beatty : Publication House, New Delhi.
from ASI unless mentioned otherwise. A Catelogue of Indian Miniatures, Oxford x Lowe, WH (trans.) 1973, Muntakhab-ut-
University Press, London. Tawarikh, Delhi.
Bibliographic references x Beveridge, AS (trans.) 1936, Tabaqat-i-Akbari x Š ^€[\‹\^XŒ    Š
x Government of India 2010, Gazette Vol 2, Calcutta, Beveridge, AS (trans.) 1977, Court’, Proceedings of Indian History
       Akbar Nama Vol. 3, Calcutta. Congress, pp. 1061-1072.
Justice, New Delhi. x Brown, P 1968, Indian Architecture, x Modi, JJ 1903, The Parsees at the Court
x 1923, ‘A Catholic Chapel in the Court of Islamic period, D. B. Taraporevala Sons, of Akbar: Dastur Mehrjee Rana, Bombay
Akbar’, St. Xavier’s college Magazine, Bombay. education society’s press, Bombay.
Bombay. x Hoyland, JS (trans.) 1922 , The x Moses, A 1942, ‘Cow protection in Mughal
x 1926, ‘The Palace of Akbar at Fatehpur commentary of Father Monserrate, S.J. India’, Journal of Indian History, no. 21, pp.
Sikri’, Journal of Indian History, no. 4, pp. on his journey to the court of Akbar, 216-220.
53-68. Facsimile, tr., Oxford. x Murthy, R K 1944, ‘Jains at the Court of
x Afonso, JC 1980, Letters from the Mughal x Heras, H 1923, ‘The Jesuit dwellings at Akbar’. Journal of Indian History, no. 23,
Court: The First Jesuit Mission to Akbar, Fatehpur Sikri’, The Examiner, Bombay. pp.137-143.
1580-1583, Gujarat Sahitya Prakash, x Jarric, PD, (trans.) & Payne CH 1979, x Maclagan, E 1932, The Jesuits and the great
Anand. Akbar and Jesuits:An account of the Mogul. pp. 311-312.
102 Evolving Models of Site Management in the Indian Subcontinent

x Nath R 1976, Some Aspects of Mughal 3

Ochre Coloured Pottery culture is a (lInd. Ms. No. 3) is probably the one carried
Architectures Abhinav, New Delhi. Bronze Age culture of the Indo-Gangetic off to Persia by Nadirshah from the Royal
x Nizami, KA 1989 Akbar and Religion.DK Plain (Ganges-Yamuna plain); the black Library of Delhi .Arnold and J.V. Wilkinson,
Printworld, Delhi. and red ware culture is an early Iron Age The library of Chester Beatty, A Catalogue of
x Nevill, HR 1905, Agra: A Gazetteer, archaeological culture of the northern Indian Miniatures, 1, p. 6) A third set in Naskh
Allahabad. , Indian subcontinent; the Painted Grey script exist partly in City Palace Museum,
x Rizvi AA & Flynn, VJA 1975, Fatehpur Ware culture (PGW) is an Iron Age culture Jaipur and 12 miniatures in Gulistan. For more
Sikri, Taraporevala, Bombay. of Gangetic plain, lasting from roughly; the information on second and third illustrated
x Rizvi, SAA 1975, Religious and intellectual Northern Black Polished Ware culture of the series, see Norah Titley, Miniatures from
History of the Muslims in Akbar’s reign, Indian Subcontinent is an Iron Age culture, Persian manuscripts, Catalogue and subject
Munshiram Monoharlal, Delhi. succeeding the Painted Grey Ware culture. indexes of paintings from Persia, India, Turkey
x Smith, VA 1917, ‘Akbar’s House of worship 4
 Š“Š #”‚         in the British Library and the British Museum,
  X‚‘ %€‘}^Journal of the Royal of comparative religion (Nizami 1989). This London, 1977, 11, pp. 4-5, Sir Thomas Arnold.
Asiatic Society of Great Britain & Ireland, opinion does not seems to be borne out The Library of A. Chester Beatty : A Catelogue
vol. 49, no. 4, pp._ 715-722. by facts as there are evidences for the of Indian Miniatures, Rev, and ed. J.V.S.
x Sharma, SR 1972, The Religious Policy of comparative religious, studies from the Wilkinson, London 1936, Vol. 1, pp. 1-12, Vol.
the Mughal Emperors, Asia publishing house, period of Muawiyah (661-680 A.D.) and Abdul 11, pp. 16-37, Ashok Kumar Das, Treasures
New Delhi. , Malik. During Abbasid period many books on of Indian Paintings from the Maharajah Sawai
x Sen, G 1984, Paintings from Akbar Nama, the subjects were written both by Muslims and Mansingh II Museum, Jaipur Series, Two, Pl.
Lustre Press Pvt Ltd Varanasi. Christians. Before the close of 10th century 1, and Ashok Kumar Das, Dawn of Mughal
x Shea, D & Troyer, A (trans.) 1843, Dabistan- both the Old Testament and New Testament painting, Bombay 1982.
8
ul-Mazahib, London. were translated in to Arabic in more than one Miniature of the Jesuits, Rudolf Acquaviva, a
x Singh, HN 1930, ‘The Genesis of Din-i-Ilahi’, version. young man with clean shaven face and Father
5
Journal of Indian History, no.9, pp. 306- 329. The direction that should be faced when a Monserrate or Henriquez had been painted by
x Smith, VA 1917, Akbar the Great Mogul, Muslim prays during salat, that is the ritual Narsingh. The court painter. Above the picture
Oxford University Press, London. & ' Š ^&       is the sentence in Akbar Nama describing
x Wellenz, E 1952, Akbar’s religious thought day. the presence of Christian priests ‘Padre
6
>#     George Allen Ulema is a body of Muslim scholars Radolf, one of the Nazarene sages was
and Unwin, London. who are recognised as having specialist making points in the feast of intelligence._
x Verma, SP 1978, Art and Material culture knowledge of Islamic sacred law and #‚   &      
in the paintings of Akbar’s court, Vikas, theology. Sheikh is a leader in a Muslim Christians in the court Badauni says “Learned
New Delhi.  '    Q  monks from Europe advanced proofs for
x Qaisar, AJ 1982, The Indian response to Muslim ascetics and mystics.  'Q  '‚         
7
European Technology and Culture, Oxford Three sets of Akbar Nama paintings are Christian religion and wishing to spread the
University Press, Delhi. available in various Museums and Libraries doctrines of Jesus ordered prince Murad to
all over the world. The earliest copy seems to take few lessons in christianity undergood
Notes be the one housed in Victoria Albert Museum. auspices and charged Abul Fazl to translate
1
Although the work was started from 1976 The authenticity of it is unquestionable as it the Gospel. Instead of the usual Bismillah
and continued up to 1988-1989, the bears an autograph of Emperor Jahangir. Irrahman-Irrahim_. the following lines was
author participated in it from 1978-1987. Perhaps this might have been completed by used Ainami vay Gesuchristu (Lowe 1973,
2
Microlith is a small stone tool usually made the end of the year 1600 A.D. The second p. 267).
9
     '& '     set housed partly in British library or. 12988) Type of cassock worn by Roman Catholic
so in length and half a centimetre wide and partly in Chester Beatty Library, Dublin priests.
 Nominating and Managing World Heritage Sites in South Asia 103

Notions of Interpretation and

Management
Cultural heritage of Taxila, Pakistan
860$1$/,

ABSTRACT

Pakistan has a vast diversity of cultural heritage, including six world

heritage sites that are currently facing various national and international
challenges. These include non-supportive attitudes of stakeholders to
promote cultural tourism and sustainable cultural development, need of
adequate cultural policies and strategies and organisation of research
activities and training programmes. There is a necessity to apply
interpretation as a tool for heritage management of cultural heritage in
Pakistan. Issues and challenges presented by the Taxila World Heritage
Site demonstrate this requirement.

INTRODUCTION

Usman Ali is a PhD research scholar in In recent decades, the requirements for planning in the conservation
University of Nova Gorica in Slovenia having and management of cultural heritage have suffered from various global
research interests in Archaeology and Heritage challenges. These challenges can be mitigated through the adoption of
Management. He is also a member of Pakistan improved strategies and planning methods with clear aims prescribing and
National Commisision of ICOMOS and regulating the integrated management system for cultural heritage. The
International Committee of Archaeological integrated management process consists of incorporating various facets
Heritage Management. of conservation and management. One of these elements, and certainly
104 Nominating and Managing World Heritage Sites in South Asia

not the least important, is the interpretation and cultural heritage of Pakistan is preserved in a large
representation of cultural heritage. The main purpose number of ancient sites and historic structures that
of this element is to express, evoke and narrate the are inscribed in lists of protected monuments by the
              ' Department of Archaeology and Museums (DOAM) of
to the appreciation of values associated with it. Pakistan. In addition to these, Pakistan has important
Interpretation planning consists of a mechanism with intangible heritage consisting in various cultural
primary focus on the promotion of understanding and expressions, representations and activities of the native
awareness of cultural heritage among local and foreign   !  '     
people. Interpretation should take into due account the surveys have been conducted by concerned authorities
requirements of the time and space of the particular so far to document and preserve the valuable cultural
cultural region. tradition of Pakistan.

According to the UNESCO Lahore Charter for the The interpretation plan is a device that accelerates
Conservation of Islamic Architectural Heritage, 1980, educational activities of the local communities
concerning heritage: and tourists in the broader sense. There are many
The participant felt that it was important to underline that organisations adopting various strategies for promoting
the architectural heritage of Islam embraces not only great the education activities’ in different regions, especially
monuments, individual buildings and sites of exceptional in cultural districts, where there is need to promote
qualities and their settings but also the ordinary dwellings comprehensive awareness. Nevertheless, education is
of Muslim people in the village and town, such as               
vernacular architecture that forms a physical environment utilisation of interpretational strategies and planning.
 *           The analysis and evaluation of research activities
character of Muslim society and to the exigencies of related to cultural heritage are an integral part of
nature. Indeed, the symposium noted that the harmonious interpretation planning. Heritage interpretation is
interaction of the man and nature is still to be admired in also a source of sustainable development for local
many traditional settlements of the Islamic world. stakeholders who are living in cultural districts.

Thus, cultural heritage is a joint combination of the NEED FOR HERITAGE INTERPRETATION
physical setting and spiritual experiences that are IN PAKISTAN
not only concurrent with visual attraction but also
attributed directly and indirectly with the identity of a Pakistan is one of those countries where cultural
human being. territory is extremely fragile. It comprises of social,
             
As a resource, interpretation presents heritage in a            
manner that it becomes possible for the audience to expressions over time. Therefore, strategies for
understand the sense and theme of cultural heritage. appropriate planning, intended for the sustainability
              of cultural heritage in Pakistan as well as mitigating
out false information and represent and narrate the impact of natural and human disasters on heritage
authentic information of cultural heritage to the resources should be adopted. In this context, many
stakeholders. In addition, interpretation highlights organisations; national and international, have
              been making special efforts to allocate resources
community and public. Heritage interpretation for sustaining and maintaining the cultural heritage
is not only connected with tourism but also has in Pakistan. This is also endorsed in national and
potential for further research, supporting protection international legal documents. The strategies
and conservation, cultural activities, allocation of should be validated in the long term, guaranteeing
economic and social resources and lastly involvement the implementation of an appropriate process of
and participation of various stakeholders in the conservation management, taking into account the
conservation of heritage resources.   '         

Pakistan is a country with an indigenous culture and At the national level, the DOAM, Pakistan is
a strong national identity, expressed in the form of responsible to carry out activities for protection and
tangible and intangible heritage, contributed by the management of cultural heritage. There are 392
passing of different cultures in its history. The tangible legally protected sites and monuments in Pakistan,
 Nominating and Managing World Heritage Sites in South Asia 105

Map showing archaeological sites in Taxila

including 10 monuments listed as national monuments Development of sustainable tourism in Pakistan is a

and six inscribed in the World Heritage List. At the part of the current challenges for policy makers and
moment, more sites are under consideration to be researchers especially when Pakistan is suffering
listed for protection. As part of the task to protect the brute actions of terrorism. Tourism activities
and preserve sites and monuments, the DOAM are a source of income for the country and heritage
has established collaboration with national and interpretation has the potential to support tourism over
international organisations, in order to obtain assistance a long term period.
and support, where necessary, for the protection
and management of cultural heritage in Pakistan. Pakistan is also suffering due to the negligence of
For instance, steps have been taken to organise concerned authorities in the development of appropriate
international conferences, seminars, workshops and strategies and suitable planning for motivating and
exhibitions and research activities have been made promoting cultural sense in local communities and
possible with the help of international assistance to visitors. In addition, there is a need to reduce the lack
strengthen protection and management. The process of awareness and disregard about protection of cultural
requires allocation of multiple human resources values in local communities and visitors.
including scholars, technicians, professionals and
economists. Unfortunately, the lack of academic, Multiple values are associated with cultural heritage
        )      ƒ=    ='          
implementation. the political value of heritage. Politics is a prominent
feature of the social change of human beings over
The distinct cultural identity of Pakistan has a direct time and is closely linked with the cultural identity
impact on its social systems and vice versa. This and emotions of the people. It is this identity and
   '        ) emotions that make heritage a symbolic entity. As a
and analysis of the values of its cultural heritage.       (         
106 Nominating and Managing World Heritage Sites in South Asia

Buddhism in the Subcontinent. Taxila World Heritage

Site contains various residential and religious sites that
represent different historic and cultural layers. Most of
the prominent sites in Taxila region are Saraikala, Bhir,
Sirkap and Sirsukh, Dharmarajika Complex and Stupa,
the Khader Mohra grouping, the Kalawan grouping, the
Giri monasteries, the Kunala stupa and monastery, the
Jandial complex, the Lalchack and the Badalpur stupa
remains and monasteries, the Mohra Moradu monastic
remains, the Pipplian and the Jaulian remains.

Taxila was inscribed on the World Heritage List in

1980 under the following cultural criteria:
Criterion (iii): The ruins of four universally meaningful
settlement sites at Taxila (Saraidala, Bhir, Sirkap, and
Sirsukh) reveal the pattern of urban evolution on the
Sirkap at Taxila
     )     
of Pakistan and their on-going political activities. As Taxila is the only site of this unique importance on the
stated by Aplin (2002), ‘heritage interpretation is often subcontinent.
quite clearly used as a political tool, reinforcing the Criterion (vi): The Bihr mound is associated with the
belief and stances of the hegemonic a group, which historic event of the triumphant entry of Alexander the
is clearly shown in the use of national monuments, Great into Taxila.
and icons, and in the very visible place they occupy
in national heritage lists’. Various political parties In the context of management of cultural heritage of
     (       Pakistan, there is an essential requirement to highlight
especially concerning the conservation and protection that the main purpose of management is promoting and
processes. These political decisions play a critical role generating cultural values for the local community and
in protection and presentation of cultural heritage, visitors. The aim of an interpretation plan is to initiate
including the nomination process of the cultural            
heritage to World Heritage List. places and differentiate true information from bogus.
The World Heritage Operational Guidelines specify
FORMULATING AN INTERPRETATION  )         Z   'Y
PLAN FOR TAXILA and ‘integrity’. Therefore, the interpretation plan needs
to incorporate these elements in the form of statement
Taxila has several different layers of history dating        ) 
back to the Neolithic time. This cultural region
is situation in the Rawalpindi District of Punjab The scope of the Interpretation Plan for Taxila World
Province of Pakistan and between the rivers, Indus Heritage Site is outlined as follows:
and Jhelum. Taxila is located about 32 kilometres x          ) 
to the north-west of Islamabad Capital Territory cultural stratum that should or would be considered
and Rawalpindi in Punjab, just off the Grand Trunk           
Road. It lies 549 metres above sea-level. Boundaries x Developing a conceptual management approach for
of the ancient city of Taxila can be assessed by the site, using various appropriate techniques and
archaeological remains that are spread over an area of methods of interpretation planning.
about 20 square kilometres from the main city. It has x Extending the cultural expression and diversity of
       ( '   the cultural districts to the rest of the surrounding
        (    ƒ  Q regions.
and Central Asia. In particular, the contribution of x Integration and involvement of different stakeholder
*  Q        to share the potential development of the
holistic vision for the City. Additionally, Taxila City Interpretation Plan such as academic institutions,
is associated with the reign of Ashoka, who was the administration and concerned authorities, private
Indian emperor of the Mauryan Dynasty in second and public organisations and especially the local
century BC, responsible for the dramatic spread of the community.
 Nominating and Managing World Heritage Sites in South Asia 107

Dharamajika Stupa, Taxila

x Determining the role of cultural heritage in the in cultural districts involving the collaboration of
context of social and economic development of the national and international stakeholders.
society.
x Generating and accelerating the attribution of CONCLUSION
cultural values in the public with the help of
stakeholders whose involvement and participation is Heritage interpretation is not only about providing
vital for these actions. guidelines to understand and promote awareness
x Promoting sustainable cultural tourism in the of cultural heritage, but also to extend, sustain and
cultural districts through mutual dialogue with the             ?  
local development authorities. interpretation is one of the major components of
x Determining priorities of cultural policies and protection and conservation. It aims to offer access
              to managers and stakeholders for the analysis,
x Analysis and evaluation of conservation and evaluation and review of the level of performance of
preservation decisions about cultural heritage cultural heritage. Moreover, to attain an appropriate
determined through interpretation planning. This will cultural approach required to improve assessment and
be a central element to mitigate risks to site. interpretation will be one of the future challenges to the
x Increasing opportunities of allocation of resources heritage of Pakistan.
108 Nominating and Managing World Heritage Sites in South Asia

Bibliographic references Cultural Heritage, ICOMOS, Belgium.. vol.1, no.2, pp. 45-60.
* Alderson, WT & Low, SP 1985, * ICOMOS 1999,Burra Charter for the * Tilden, F1957 Interpreting our heritage,
Interpretation of historic sites, Rowman Conservation of Places of Cultural The university of Carolina press, Chapel
Altamira, Nashville. Q  , ICOMOS, Australia. Hill.
* Aplin, G 2002, %    * ICOMOS 1999, International Cultural * UNESCO 1972, Convention Concerning
Conservation and Management, Oxford Tourism Charter - Managing Tourism at the Protection of the World Cultural and
University press, Melbourne. [  % Q  , ICOMOS, Natural, UNESCO World Heritage Centre,
* Knudson, DM, Cable, TT & Beck, L Mexico. Paris, viewed July 1, 2011,<http://whc.
1995, Interpretation of cultural and * Mahmood, Z,2011, State Vandalism of UNESCO.org/en/conventiontext>.
natural resources. Venture Publication, History in Pakistan,Vanguard Books, * UNESCO 1980, Lahore charter of
Pennsylvania. Lahore. Conservation of Islamic Architectural
* Feilden, BM & Jokilehto, J 1993, * Moscard, G (1998) ‘Interpretation and Heritage, UNESCO WOrld Heritage
Management guideline for World Cultural Sustainable Tourism’, The Journal of Centre, Paris.
Heritage Sites, ICCROM, Rome. Tourism Studies, vol. 9, no.1, pp. 2-13.. * UNESCO 1999, Operational guideline
* Torre, M (ed.) 2002, , Assessing the * Pedersen, A 2002, ‘Managing Tourism for implementation of the world heritage
Values of Cultural Heritage, Getty at World Heritage Sites’, World Heritage convention, UNESCO WOrld Heritage
Conservation Institute, Los Angeles. manuals, no.1, UNESCO World Heritage Centre, Paris.
* Hall, MC & , Simon, MA 1997, Integrated Centre, Paris. * UNESCO 2004, Cultural tourism
Heritage Management. Principles and * Padro, J 2002, La interpretacion del in Lahore and Peshawar, UNESCO
Practice, John Wiley & Sons Inc, New partimonio. Contexto, situacion actually WOrld Heritage Centre, Paris.
Jersey. tendencias de futuro. In. III, IV, V * UNESCO 2005, Convention on the
* ICOMOS 1992, Charter for the jornadas andaluzas de diffusion. Junta de Protection and Promotion of the Diversity
Conservation of Places of Cultural andalucia. 2002. of Cultural Expression, UNESCO World
Heritage Value, ICOMOS, New Zealand. * Shahid, J 2011, ‘Some People are Just Heritage Centre, Paris.
* ICOMOS 1994,Nara Document on Lucky’, Dawn Islamabad, 20 March. * UNESCO World Heritage Centre 2010,
Authenticity, UNESCO World Heritage * Somuncu, M & Khan, AA 2009, ‘Current ‘Taxila’ World Heritage List, World
Centre, Paris. Status of Management and Protection Heritage Centre, Paris, viewed March 8,
* ICOMOS 1998, Ename Charter of of Taxila World Heritage Site, Pakistan’, 2010, <http://whc.unesco.org/en/list/139>.
Interpretation and Representation of University of Ankara ecology journal,
 Evolving Models of Site Management in the Indian Subcontinent 109

Paradigms for
Structural Conservation
Observations and approaches for the Sun
Temple, Konarak
6$37$56+,6$1<$/

ABSTRACT

The ongoing efforts for structural conservation of the Sun Temple,

Konarak, a pinnacle of Indian monumental architecture and an inscribed
UNESCO World Heritage site is a useful case to highlight how it is
essential to view conservation of monumental structures as a continuous
process, not just in theory but also in practice. Through this case,
Saptarshi Sanyal, conservation architect, is critical analysis of history of this structure as well as the history of
currently Assistant Professor of Architecture          ?       
in School of Planning and Architecture, New today. Permanent intervention in the past, resulting in peculiar site
Delhi. He is teaching courses on Theory of conditions, makes the process of collecting data to quantify these stresses
Settlements and History of Architecture. As "  #      #" 
a Consultant Conservation Architect in the some crucial site observations with experts’ recommendations made
Archaeological Survey of India, Saptarshi over time, it has been possible to anticipate likely nature of these threats
has worked in major conservation projects and pressures on the temple’s superstructure. The approach helped to
such as the Sun Temple, Odisha and Ahom             
Monuments, Sibsagar, Assam. Additionally, he to the Sun Temple. This is an ongoing process for Indian built heritage,
has undertaken smaller assignments in over 15 continuously available for rediscovery and introspection on the way
states of India. heritage conservation is viewed and practiced.
110 Evolving Models of Site Management in the Indian Subcontinent

INTRODUCTION testimony to the 13th century kingdom of Odisha,

previously known as Orissa (criterion iii) and as
In today’s conservation practice, it is considered a link in the diffusion of the Tantric cult of Surya
essential to critically evaluate the history of a structure (Sun) Worship (Criterion vi) (UNESCO 1984). Its
and information sources on prior interventions. The Outstanding Universal Value (OUV) is embodied
analysis is both qualitative and quantitative. The predominantly in the formal rendition of concepts in
qualitative studies, that comprise research and visual architecture and sculpture.
  )   †     
These precede any decisions regarding current or future Architectural form, design and artistic value
course of structural and material treatment. The Sun Temple is an anthromorphic cultural
embodiment in architectural form. It represents
The Sun Temple, Konarak, situated in Odisha, India the culmination of Kalingan temple architecture in
is considered a pinnacle of the Kalingan architectural complete and perfect rendition of a chariot of Surya,
typology of temples. Recognition of its outstanding the Sun God. The temple is ‘mounted’ on 12 pairs of
architectural and artistic attributes elevated this wheels driven by seven horses with all iconographic
monument to World Heritage status in 1984. At the features and paraphernalia. Its architecture is unique
time of its inscription on the World Heritage List, the by virtue of creative deviation from contemporary
structure was in partially ruinous state and several construction trends, while also conforming to elements
decades of repair work and conservation measures from the Silpa Sastras (Behra 1996) and other texts
had already been carried out. The recent task of the that formed the ancient design canon. For example,
Archaeological Survey of India’s (ASI) technical team, placement of independent natamandira (dance hall)
comprising conservators, archaeologists and engineers, at a considerable distance from jagamohana (prayer
with the author as a part of it; has been to study certain or audience hall) and rekha deula (sanctuary), to
interventions critically in order to ascertain the current accommodate aruna sthamba or pillar as integral
approach for structural conservation. Since 2010, architectural component of its overall design, with
assimilation of vast sources of information found Surya’s charioteer surmounted on it (Donaldson 2005)
through literature and evaluation of recommendations         
by external experts has been a painstaking but
  *  š     ' )   This monument also represents perfection in classical
such research with the team’s detailed visual inspection Indian art as evident in its sculptural representation.
of the structure brings forth complex and challenging Contemporary society is depicted prominently on the
problems of structural conservation that provide clues exterior of the temple, through daily activities both
for quantitative analysis. secular and religious, exemplary erotic art along with
celestial creatures. These artistic narratives in sculptural
One particular problem may have serious implications manifestations are of high degree of excellence in
on the safety of this monument and contributes to an workmanship and represent the widest assortment of
uncertainty in approaching conservation treatments themes and subjects. Apart from what remains today,
currently. This is an important part of the discourse the architectural and artistic excellence of the Sun
in advancing knowledge on conservation theory and Temple has been uncovered through several historical
its practical application. Crucial observations that textual records at various stages dating since the 16th
help estimate factors that endanger the monument’s century. These also indicate the descriptions of the
structural safety and the ways in which further temple in its complete state as well as the many stages
investigation can be carried out are highlighted. The of its ruin (Mitra 1976). These are supplemented by
analyses presented below synthesise historical survey, visual records in the form of paintings and later, as
material and structural studies as well as on-site photographs from the 19th century onwards.
inspection of the structure.
Presently, the remains of the original temple that
ARCHITECTURAL AND MATERIAL survive are its audience hall or jagamohana, the base
OVERVIEW of its  '   ( )    
hall. Several historical and material causes have been
The Sun Temple merited inscription on the World assigned for the ruin and destruction of the temple
Heritage List based on its representation of a unique (Sharma & Sanyal 2010). The jagamohana, measures
artistic achievement (criterion i), an outstanding 30 metre a side externally, square in plan, and is 37
 Evolving Models of Site Management in the Indian Subcontinent 111

View of the remains of the Sun Temple in the beginning of the 20th century.
Source: Archives of the National Library, Kolkata: Asutosh Collection

Carvings on the plinth of the Sun Temple (left) and its comparison in scale with similar temples
Source: Author’s drawings and photographs for ASI
112 Evolving Models of Site Management in the Indian Subcontinent

Behaviour of Jagamohana roof: arch effect (left) and domical thrusts (right) as per previous analyses. Source: Illustrations by author
 Evolving Models of Site Management in the Indian Subcontinent 113

metre high from the plinth level, which is another rapidly constructed modern building, although for
4.6 metre in height. The roof forms a square hollow the Sun Temple, which was built over at least 12
stepped pyramid in three stages that is 36 metre across years, gradual consolidation of the soil, which is
at its base and 18 metre in height. Its circular crowning granular laterite, would have taken place over its
element, the amlaka, is 13 metre in diameter and eight construction period (Feilden & Beckmann 1987).
metre high. Further modelling of the structure has been done
with the Finite Element (FE) analysis. This was
Construction and material properties based on the assumption of a homogenous and
x Description of materials and construction: The elastic material of the building structure. Though
conservation issues within the scope of this paper anisotropic (directionally dependent) in reality,
are with respect to those of the jagamohana. The Prof. G Croci’s team (1997) considered this for
wall construction is of three-leaved dry constructed computational purposes and analysed the structure
masonry with laterite stone for core and khondalite in terms of its dead load5 as well as step-by-step
stone for external and sculptural surfaces. Its building phases. It was found through this study that
foundation is primarily of laterite and important compressive stresses6 reach the maximum value at
carved elements like doorway jambs and deities are the internal corners, which are of the order of 1.0
constructed in chlorite stone. Iron is an important newton per square millimetre. Tensile stresses are
structural element and is used for cramps and much lower and are around 0.25 newton per square
dowels to hold the masonry as well as in tensile2 millimetre over the doors and 0.125 newton per
structural members such as lintels3. Apart from those square millimetre in the inside of the roof. Overall,
resting in-situ over doorways, several large iron the roof’s behaviour is domical, or likened to the
beams resting on stone columns were also used for ‘arch effect’. The stresses below this arch line are
supporting the corbelling4 of the superstructure, but vertical compressive and horizontal tensile, which
are now dislodged. are even lower at 0.05 to 1.0 newton per square
x Structural attributes and inherent stresses of original millimetre. This indicates that such a pattern is
design: From studies on the approximate density of critical for local stability, because in corbelled dry
stones used, Prof. Bernard Feilden in his report on masonry, the horizontal tensile strength is provided
the structure in 1987 had estimated it’s mass to be by shear7. It depends on the vertical stresses and
46,000 tonnes above the plinth with a pressure of friction angle8 between individual block (stone)
460 kilonewton per square metre on its foundations. surfaces (Croci 1995).
He states that this could be considered high for a

Loose stones on the left facade of Jagamohana roof. Source: Photograph by Author for ASI
114 Evolving Models of Site Management in the Indian Subcontinent

BEHAVIOUR AND DAMAGE DUE TO With the knowledge from available historical records,
DESIGN AND NATURAL ACTION       ) ˆ  
temples of a similar scale, such as the Lingaraja temple
Local failure of masonry in Bhubaneswar and Jagannath Temple in Puri, it
    )   jagamohana’s structure is expected that the iron beams that have collapsed
has been the loosening of the masonry blocks in its would have played a decisive role in upholding both
pyramidal form. From historical records of descriptions the global and local stability. These conditions lead
       )     to the conclusion that while the overall structure of
as far back as the 19th century (Bose 2009). Today, the the jagamohana may be stable today, this can only be
structural behaviour of the monument, the damages it )             
sustained and its inherent stresses help illustrate the However, such inspection is prevented by the fact that
causes of such failure. the interior is currently inaccessible. Thus an evaluation
of this major structural intervention that led to the
Due to the overall domical behaviour of the pyramidal current conditions with regard to this monument.
roof as noted above, compressive stresses are
concentrated around its corners. It may be inferred FILLING OF JAGAMOHANA STRUCTURE
that there is a predominance of tensile stresses in AND RESULTING ISSUES
the masonry while moving away from the corners of
the square form. Such a condition makes it evident With regard to its structural stability, the most
that sections of the corbelling that are away from the        )'   )  
arch-effect or dome thrust-line9, do not participate Sun Temple jagamohanaY  '      
in the global stability, even as per original design. interior in beginning of the 20th century. Some recent
The resultant tensile forces cause the blocks in these observations in monitoring of continuous vertical
areas to break loose. Rust related expansion of iron cracks on its northern and western faces indicate a need
cramps due to penetration of moisture, not only on to question this intervention critically. The forthcoming
the exterior but also interiors, adds to the problem and subsections here will describe the actual intervention,
causes splitting and local failure of masonry blocks. and analyse to what extent it serves its intended
Vertical cracks observed in individual stones and purpose; with above knowledge on the inherent
loose projecting stones in the projected sections of the pressures in the structure.
exterior substantiate this. Due to most of the corbelled
masonry being projected stones in the interior, the           
)      ' )     Between 1903 and 1908, the interior of the jagamohana
the interior is inaccessible at present, a watercolour              
painting with a view of the interior dated to 1812 and    '     ‰   )   =
cross sectional drawings prepared in 1902-03 (Swarup and 15 metre in height from the bottom to the top.
1997) are important visual records that prove the Historical records on this repair work indicate that
observations made above are also true for the interior the total volume of stone weighs about 2000 tonnes
of the jagamohana. (Chauley 1997). The dry stonework was extended to
all doorways, blocking any openings from which this
Hypotheses on global stability of jagamohana          )      
From FE modelling studies, it was understood that        ' )      
in the original structure, supported by iron beams, from the top of the crown and each of the sides of the
the inner corbelling masonry does not contribute to vertical walls.
the global stability. The collapse of the supporting
columns and beams, however, make the local masonry As stated earlier, the collapse of masonry from the
vulnerable to disjointing (Croci 2006). While the local internal portions of the roof of the jagamohana was
failures have been occurring, the delineated structural perceived as a threat to safety. The splitting and
behaviour indicates that due to the thickness of the falling of stones due to local stresses and chemical
pyramidal form of the roof, a large inner volume of action would have, in turn transferred the load to
masonry does not participate in its overall stability. neighbouring blocks and this catenation10 of stresses
This dome or arch effect, in three and two dimensions may have eventually caused the supporting iron beams
respectively, is sustained along its thrust line and stone pillars to collapse, as evidenced in its latest
irrespective of the loosening of masonry blocks. visual records.
 Evolving Models of Site Management in the Indian Subcontinent 115

\] ^  ]    ^    +          _ 
Source : Photographs by Author for ASI

Implications on structural safety today x Effect on global stability: Two major observations
             relating to global stability were made in the
support the masonry that was vulnerable to failure and investigations of 1987 but their causes were unclear.
dislocations. The resulting outcomes of this repair work       Z   Y    ) 
based on structural understanding of jagamohana and is, the centre being lower than the edges due to
detailed inspection of its exterior have been described differential settlement. While the plinth did not show
in detail: any cracks, the possible reason for this may be the
x Support to collapsing stones: The inspection of renewal of the surface stone after their development.
          +  The second was that of continuous vertical cracks at
intended to originally support the inner corbelling certain locations of the lower part of the structure.
has sunk. This was observed at the vents that were It was decided in the recent investigations that
left after closing openings used to originally load the latter vertical cracks would be monitored
sand. Currently, there is passage of air through these †  ' '  *   +   )=  
openings, which indicate a differential pressure in Over time, the breakage in glass indicates that these
the interior and exterior. Moreover, the passage of cracks are expanding. With above understanding of
air is only possible because the space at this level of the depressed condition of sand, it is quite likely that
the structure is hollow from the inside. This suggests the thrust on the walls is both vertical and lateral.
     '      These observations raise concerns on the masonry
There are two very plausible explanations for the     Y       '
      '   )      x Reversibility‰   '        
spite of the best measures being taken at the time the masonry is irreversible unless a major intervention to
sand could not have been compacted fully since the remove them is made. This has formed a continuous
jagamohana was already a covered space. Secondly, debate since the past four decades regarding whether
with a combination of time and moisture ingress, the the structure will be further affected by such a
+        „ )     )      
these situations caused the sand to sink; therefore irreversibility of the intervention gives rise to
compaction occurred under its own weight. From another important problem as noted below.
available architectural documentation showing the x Access for future qualitative and numerical studies:
 11 of the structure and an assumption of the             
angle of repose12 of sand as lying approximately been carried out over time, but these are based
between 30º-32º, it was gathered that the sand now only on inspection of the exterior and conjectural
    ')  )      idea of the interior. It is important to note that the
corbelled roof. This implies that the sand is not actual condition of the interior is unknown till date.
serving its original purpose of supporting the falling This knowledge is, however, critical to inform any
stones in the interior.           ) 
116 Evolving Models of Site Management in the Indian Subcontinent

Compaction of sand as indicated by passage of air from the interior. Source: Author’s drawings and photographs for ASI

Possible reasons and signs of distress on structure as an effect on stability. Source: Author’s drawings and photographs for ASI

and quantitative assessments on structural stability stresses. Its irreversibility and prevention of access to
and safety. With the interior being totally cut off the interior only compound the problems that already
from access, the studies so far have been based on *                
earlier documentation of the interior and only, thus, is to facilitate access to the interior to study its exact
based on partial information. This necessitates the              
access to the interior to be created as a priority. This It would also enable the carrying out of structural
is critical to enable the collection of photographic, strengthening measures using the latest available
graphical and numerical information that would help technology. The ASI team prepared a proposal to
the analyses that are needed to inform structural address such an issue in three major stages starting with
conservation treatment in the future. the making of a passage into its interior.

Inferences CONCLUSIONS AND FUTURE ACTION

The original intent of the intervention in the monument
'          )'   The intervention that forms the focus of this paper
from collapsing. But today, its behaviour has altered the is over a century old and was not according to
            contemporary conservation principles. It raises several
 Evolving Models of Site Management in the Indian Subcontinent 117

important concerns and issues, all of which are elements, while introduced to ensure stability,
today in favour of changing paradigms of structural    '            
conservation. Some questions will continue to remain, impact on global and local structural properties. This
and some will be addressed in near future through happens due to nature of the materials used, as well as
proposed action. It is, nevertheless, very important that    )      ) 
structural conservation related to complex problems intervention.
like those of the Sun Temple be addressed very
cautiously to avoid permanent damage to irreplaceable Authenticity versus structural safety
cultural heritage.   )   =         
Sun Temple raises is that of whether the permanent
Diagnostic action and periodic reporting intervention of the 20th century is a part of its history
The case of the Sun Temple’s jagamohana helps us or not. If viewed in this line of argument, any change
appreciate that a thorough appraisal of a structure is as to it would mean altering the history of the structure.
important as the conservation treatment that follows However, if analyses such as those comprising above
from it, in contemporary practice. This appraisal is discussion reveals that it a) does not serve its intended
possible only through a continuous process called purpose of ensuring stability and b) endangers the
monitoring. The latest periodic report on the Sun stability of the structure today, should it be allowed
Temple (2012) to the World Heritage Committee, to remain? This question can only be addressed by
amongst other issues that relate to visitors and planning facilitating access to the interior and getting a more
    =        )          
important structural issue. In this respect, continuous current state of conservation.
monitoring of the cracks has since been initiated.
However, the quantitative indicators for measuring Proposal for investigation of interior
 *        '      For this purpose, a proposal for penetrating into
investigation of the interior state. It is found that factors the structure with a workable sized tunnel was
affecting local and global stability are linked but not  )      ')  
necessarily co-dependent (UNESCO 2003). the western side. This proposal, which is currently
under discussion, addresses the concerns for current
Continuity and reversibility of actions intervention by:
A fundamental aspect of conservation action is that x !         )   }
it is continuous. This means that at any point in time, therefore, with minimal damage to the artistic and
the action is only as good as the available knowledge sculptural works.
and technical capabilities of human and material x Application of chemical methods for dissolution of
resources respectively. It also implies that future action mortars to create tunnel for access, thereby reducing
could possibly address issues that cannot be addressed any risk from vibration or mechanical stresses.
today. To leave scope for such continuity, physical x Progressive strengthening of passage by dry and
interventions on the structure should be reversible. reversible methods using Fibre Reinforced Plastic
(FRP) or steel portal frames.
In repair works of Indian monuments that originated
under the British colonial government, it was common In such methods for actual action, the intervention
to use modern construction methods such as brick or within the structure is minimal and the conservation
stone buttressing, shoring and construction of new    '         
elements like pillars and columns to support weakened necessary and urgent need for planning any future
historic masonry or structural members. Such physical   =         
118 Evolving Models of Site Management in the Indian Subcontinent

3
Acknowledgements and Preservation on Sun Temple Konark, A lintel can be a load-bearing building
* "   @ ”   ”#  Om Publications, New Delhi. component, a decorative architectural
its support for research, access to archival * =^"•––—^Konark, Oxford, New element, or a combined ornamented
information and guidance. York. structural item. It is often found over portals,
* "   @    *   Š™ ”^ˆ[\š˜^Konarak.  ^@ @^ & Q
4
of Dr. DV Sharma, (Director, retired, Report on the structural condition & the In architecture a corbel or console is a
ASI) has contributed to the project work. preservation of the stone, ICCROM, structural piece of stone, wood or metal
In addition, the following members of London. jutting from a wall to carry a superincumbent
ASI shared their valuable inputs over * Š ^=[\˜|^Konarak, ASI, New Delhi. weight, a type of bracket.
5
the course of the project and analyses: *  ^=›™'^•–[–^The Sun A constant load in a structure (as a bridge,
Dr. Gautam Sengupta (then Director Temple Konarak: Past, Present and Future, building, or machine) that is due to the
General), Praveen K Shrivastava (then ASI, Bhubaneswar. weight of the members, the supported
Additional Director General), AK Patel * @ &^[\\˜Konark, The Black Pagoda structure, and permanent attachments or
(Superintending Archaeologist), late Dr. of Orissa – Work of Preservation and accessories.
6
Subash Khamari (Deputy Superintending Restoration, ASI Eastern Circle, Kolkata. Compressive stress is the stress on
Archaeologist), Dr. JK Patnaik (Deputy * ƒ    [\š]^ materials that leads to a smaller volume.
7
Superintending Archaeologist), T Lakshmi Convention Concerning the Protection of #   ^     &  
Priya (Conservation Architect), RS Jamwal the World Cultural and Natural Heritage, of stress coplanar with a material cross
(Superintending Archaeological Engineer) World Heritage Centre, Paris, viewed section. Shear stress arises from the force
and Rakesh Kumar (Draughtsman). November, 2013, <http://whc.unesco.org/ vector component parallel to the cross
In addition, the author is indebted to archive/1984/sc-84-conf004-3e.pdf>. section.
8
the discussions and inputs from Prof. * •––‹^State of Conservation The angle of a plane to the horizontal when
(Ing.) Giorgio Croci at the Seminar for of the World Heritage Properties in the a body placed on the plane will just start to
Conservation of the Sun Temple, Konarak, ` '[> , UNESCO World slide.
9
Bhubaneswar (2010). Heritage Centre, Paris, viewed November In an arched structure, the line of action of
2013, <http://whc.unesco.org/archive/ the resultant compressive force.
10
Bibliographic references periodicreporting/APA/cycle01/section2/246- An operation in which a number of
*   ^€[\\|^Konark: The Heritage of summary.pdf>. conceptually related components are linked
Mankind, Aryan, New Delhi. together to form a larger, organisationally
*  ^€! Q$•––\^Konaraker Vibaran: Notes similar entity.
1 11
Description of Konarak, New Age, Kolkata. This article draws from the author’s The underside of an architectural structure
*   ^{[\\—^Structural Analysis of the presentation prepared for the International such as an arch, a balcony, or overhanging
Jagmohana of Surya Deul at Konark, Conference on Structural Analysis of eaves.
12
UNESCO World Heritage Centre, Paris. Historic Constructions (SAHC-2012, The angle of repose or the critical angle of
*   ^{•––|^Periodic Reporting on Wroclaw, Poland, 2012) repose of a granular material is the steepest
2
the application of the World Heritage A tensile structure is a construction of angle of descent or dip of the slope relative
Convention, ASI, New Delhi. elements carrying only tension and no to the horizontal plane when material on the
*  '^{[\\˜^History of Conservation compression or bending. slope face is on the verge of sliding.
 Evolving Models of Site Management in the Indian Subcontinent 119

The Great Living Chola Temples

6$7+<$%+$0$%$'+5((1$7+

ABSTRACT

The period from 10th to 11th century in India witnessed the culmination
of architectural skills of craftspeople and crystallisation of ethics and
principles of architecture in stone. The optimum utilisation of raw
"   #?     #  "     
conditions all contributed to the creation and erection of gigantic
             ^/ !  
Chola Temples’ fall into this category. Being revered continuously since
their construction, the maintenance and management strategies for the
temples required sensitivity towards the religious sentiments and rituals
involved. A balanced approach towards conservation and continuity of
the traditions has resulted in a successful model built upon incorporating
simple solutions through public awareness and devising appropriate
management strategies.

INTRODUCTION

In the heartland of the fertile plains of the River Cauvery, an empire had
Sathyabhama Badhreenath served as emerged by the 9th century and blossomed into the great Chola Empire
Superintendent Archaeologist, Tamil Nadu that held sway over large parts of South India from the ninth to the 13th
Circle, ASI. She is currently Director, World century AD. Nurtured in the art of temple building, the Chola Emperors
Heritage and Director, National Mission on *     )     )  
Monuments and Antiquities at ASI. Numerous temples even today dot the entire Cauvery Valley, boldly
120 Evolving Models of Site Management in the Indian Subcontinent

The Brihadisvara Temple in Thanjavur

 Evolving Models of Site Management in the Indian Subcontinent 121

The Brihadisvara Temple in Gangaikondacholapuram

authorised by their architectural style, inscriptions narrative story of Sundaramurti Nayanar. The upper
and donations. Of all these, the outstanding ones are circumambulatory depicts in bold relief, the karanas
undoubtedly the three Chola temples: Brihadisvara (108 key transitions in the classical Indian dance) as
Temple at Thanjavur, constructed by the visionary enumerated in Bharata’s ‘Natyasastra’. The other
Chola Emperor Rajaraja I; Brihadisvara Temple at temples in the complex include the Chandesa shrine
Gangaikondacholapuram constructed by his son and built coeval with the Amman shrine, a contribution of
successor Rajendra I and the Airavatesvara Temple the Pandyas in 13th century, the Subrahmanya shrine
constructed by Rajaraja II. Each of these temples were of the Nayakas in 15th or 16th century and the Ganesa
conceived and built by the emperors and patronised by shrine of the Marathas from 17th or18th century. The
them with exclusive and expensive gifts and donations. whole temple complex is enclosed by a high prakara
(compound wall) and is pierced by three gateways,
BRIHADISVARA TEMPLE, THANJAVUR two of the Chola period; the Rajarajan Tiruvasal and
the Keralantakan Gopura and one from the Maratha
Thanjavur was chosen as the capital of the Chola     )       )  
Empire and the capital revolved around the temple. the spatial disposition of the subsequently constructed
The Brihadisvara Temple at Thanjavur is a masterpiece shrines honoured the spatial concepts of Rajaraja. The
of Chola architecture. The Chola temple has perfect temple was built entirely of stone that is not available
symmetry and each of its components can be drawn in the area. It must have been quarried and brought
in a perfect geometrical pattern complementing each from a distance of nearly 40 kilometres. The temple
other. Towering over a height of approximately 60 is replete with inscriptions on the walls of the temple
metres, the temple is situated in a rectangle 240 x 120 that speak about the gifts and donations made by the
metres. Standing on a high platform of two storeys, king, his sister, his queens and commandants. These
in the garbhagriha (sanctum) is the main image the have been meticulously recorded. The inscriptions
‘Adavallan’ that is 3.66 metres tall. It is linked with the also highlight the management skills of the king in
massive pillared mandapa (hall) of the Chola period by managing such a huge temple complex.
an antarala (vestibule). Two mandapas of the Nayaka
period from 15th or 16th century precede this. The BRIHADISVARA TEMPLE,
pradakshinapatha (circumambulatory) has exquisite GANGAIKONDACHOLAPURAM
paintings of the Chola period depicting scenes of Siva
as Tripurantaka, Rajaraja worshipping at the Nataraja The Brihadisvara Temple at Gangaikondacholapuram
Temple of Chidambaram with his three queens and the was built by Rajendra I the illustrious son of the great
122 Evolving Models of Site Management in the Indian Subcontinent

The Airavatesvara Temple in Darasuram

Chola King Rajaraja I who chose this location to Gangadhara, Lingodhbhava, Vishnu, Subrahmanya
build a new capital city for the Chola Empire most and Vishnu-anugrahmurthi on the West wall and
'     †   @@th century. To Kalantakamurthi, Durga, Brahma, Bhairava,
commemorate his conquest over northern territories, Kamantaka on the North wall. But the most outstanding
he built a great temple dedicated to Siva also known sculptures are found in the niches by the side of the
as Brihadisvara. The Brihadisvara at Tanjavur had northern entrance steps to the sanctum. These are the
(  )  )' '}     Chandesanugrahamurti and Sarasvati. The bronzes
vast conception of the lay out and massive proportion of Bhogasakti and Subrahmanya are masterpieces of
of the elevation. Chola metal icons. The saurapitha (solar altar), the
lotus altar with eight deities is considered auspicious.
The layout of the sanctum with its axial units, the
Chandikesvara shrine, the cloister mandapa with the AIRAVATESVARA TEMPLE, DARASURAM
subsidiary shrines and a gopura (gateway) is similar
to Tanjavur. The location of two smaller shrines, the The Airavatesvara Temple built by the Chola King
South and North Kailasa, now the Amman shrine, are Rajaraja II in the 12th century is also a gem of Chola
different. The earliest inscription in the temple is not of architecture. Though much smaller in size when
Rajendra I, but that of his son, recording the donations compared to the Brihadisvara Temple at Tanjavur and
of his father. Gangaikondacholapuram, this temple is different as it
is highly ornate in execution. The temple consists of a
The temple has sculptures of exceptional quality such sanctum without a circumambulatory path and an axial
as the dancing Ganesa, Ardhanari, Dakshinamurthi, mandapa. The front mandapa known in the inscriptions
Harihara and Nataraja on South wall niches; as ‘Rajagambhiran tirumandapam’, is unique as it was
 Evolving Models of Site Management in the Indian Subcontinent 123

conceptualised as a chariot with wheels. The pillars of The mahadvara (entrance gateway) of the temple at
this mandapa are highly ornate. The elevation of all the Gangaikondacholapuram was in a bad state of repair
units is elegant with exquisitely sculptures dominating as some of the stone members were utilised during
the temple’s architecture. the British period for the construction of a dam. With
the documentation available in the ASI and with the
The sculptures of this temple are the masterpieces of available stones, the mahadvara was conserved. The
Chola art and include the Nagaraja, Agastya, dancing paintings in the Thanjavur temple are preserved by
Martanda Bhairava, Sarabhamurti and Ganesa, among the Science Branch of the ASI. As the temples were
others. The labelled miniature friezes extolling the neglected for a long period of time, they required
events in the lives of the 63 nayanmars (Saiva saints) regular maintenance and minor repairs to bring it back
(        )1 in this region. In to prominence.
fact, the king made donation for the singing of hymns
from ‘Thevaram’, the Saivite sacred book in Tamil, in Since the temples are centres for worship they attract
this temple. The construction of a separate temple for a large number of people. When compared to the
Devi2, slightly later than the main temple, indicates the other pilgrim centres in South India, the worship
emergence of Amman shrine as an essential component in these temples was comparatively less. The
of the South Indian temple complex. mahakumbhabhishekam (reconservation ceremony) as
prescribed by the agamic treatises after conservation/
The temples were maintained by both royal renovation works, undertaken in the 1970s and again in
benefactions and public patronage. The Thanjavur @ŠŠ]     (        ) 
temple inscriptions deal with all aspects of the also aided in the revival of several of the pujas (prayer
management of the temple. The king’s sole objective ceremonies) and festivals. Amongst the important pujas
was to ‘leave no want of the temple unsupplied’. For that were revived was the pradoshapuja (performed
the proper management of the assets of the temple, he fortnightly to the huge Nandi bull, the vehicle of Siva),
appointed 196 staff consisting of treasurers, temple in the Thanjavur temple, the annaabhishekam (offering
servants, accountants and sub accountants. Security and bathing the deity with cooked rice) performed
was taken care of by watchmen and the dancing girls annually at Gangaikondacholapuram and the saraba
were appointed as temple dancers. For services like puja (worship to a concept of Siva) performed every
garland weaving, keeping the temple clean and tidy, Sunday at an appointed hour in the evening. Each of
staff were appointed. The other two temples do not these occasions attract nearly 40,000 to 50,000 people
carry such detailed inscriptions on the day to day in respect of Thanjavur and Gangaikondacholapuram
management of the temple. The three temples dedicated and around a few hundred for the puja at Darasuram.
to Siva are under continuous worship since the day
of their consecration. A systematised set of rules as The puja at Thanjavur that involved the abhishekam
prescribed in the ritual treatises, the agamas, are to the Nandi, thousands of litres of milk and honey
followed in all the temples. is offered by the devotees and all this is utilised for
bathing the deity. Two repercussions were noticed due
MAINTENANCE AND MANAGEMENT to this. The drain would get choked with liquid and the
STRATEGIES ENABLING CONTINUITY (   '  ))  '    
a pungent odour that continued to linger over several
The temples were brought under the protection of the days. Moreover, as the liquids are offered to the deity,
Archaeological Survey of India (ASI) as far as their they acquire religious sanctity and one cannot tread
structural maintenance is concerned. The ritual aspects over it. To ensure that the religious sentiments are not
    )  '  ?    hurt and to maintain the hygiene and aesthetics of the
and Charitable Endowment Board, while the two temple premises, the drain was widened allowing a free
temples at Thanjavur and Darasuram are under the    (    
ownership of the erstwhile Maratha ruler of Thanjavur.
In the temple at Gangaikondacholapuram, a net was
All the three temples are in a good state of preservation spread around the Linga so that the cooked rice would
and only minor interventions have been undertaken.            )  
The stucco works in the vimana (tower) and the portions could be kept clean. The cooked rice was
gopuras of the temple were conserved and the leaks offered to all the devotees thereby causing a lot of
in the vimanas of all the three temples were plugged. spillage all around the temple premises. A voluntary
124 Evolving Models of Site Management in the Indian Subcontinent

body and ASI are involved in bringing the place back period paintings that were stripped from the painting
to clean levels. The burning of ghee     chamber to expose the Chola ones. Information about
lamps is an act of piety in the temples. As the number the temple and pictures of the conservation activities
of devotees have increased manifold, the number of are also exhibited. Signage, with information about
ghee lamps have also increased. The issues associated the different shrines in the temple has been displayed.
with it are that the lamps are sold close to the places A proper visitor management plan greets the visitor
where the lamps are lit. The devotees lighting the lamps at the entrance. To control the large rush of devotees,
smeared the oil on the wall nearby, either on the plain temporary barricades have been provided. A touch
surface or the sculptures and also lit the lamps at places screen detailing aspects of Chola history, architecture,
  ' )    ) )   sculpture, painting, bronzes of the temple has also been
agencies involved deduced a simple solution through installed recently.
         ) 
sold at appointed places and the places for lighting the An area of 100 metres around the protected limits
)         )   of the temple and a further 200 metres have been
oil on the wall surfaces. The oil stains were removed    Z  Y  Z  Y   
chemically and the public were constantly made aware only repairs and construction with permission are
of the problems associated with such an action. The permitted.
results were very fruitful and the devotees understood!
CONCLUSION
While the devotee is accorded utmost importance, the
visitor is not left behind. To improve the aesthetics of The management strategies adopted have been evolved
the temples all the overhanging electrical cables have over a period of time drawing a tenuous balance within
been laid underground. The lighting in the temple has the requirements of traditional continuity and priorities
been sensitised. The area in between the prakara wall of the devotees, pilgrims and the visitors. Heritage
and the temple has been landscaped and is dotted with management in these temples are a combination of
 (    the technical management of the structures, ensuring
the sustenance of all the Vedic or agamic principles
As per the norms of the temple, all are not permitted to of a ‘living temple’, allowing the visitor to enjoy the
view the paintings in the circumambulatory passage. It Z* Y      '    
is also not advisable to expose the paintings to constant promoting the arts which is an inseparable component
light. To enable all the visitors to view the paintings, of the temple. In all these endeavours there has been
life size pictures of the paintings have been exhibited a concerted effort to maintain a balance, but it is an
in the Interpretation Centre along with the Nayaka ongoing process.

Bibliographic references the god Shiva as the Supreme Being. female counterpart without whom the male
* #•–[[^ƒ    % Followers of Shiva, called ‘Shaivas’ and aspect, which represents consciousness
Temple-Brhadisvara, Archaeological Survey also ‘Saivas’ or ‘Shaivites’, believe that or discrimination, remains impotent and
of India, Government of India, New Delhi, Shiva is all and in all, the creator, preserver, void. Goddess worship is an integral part of
viewed November 2013, <http://asi.nic.in/ destroyer, revealer and concealer of all that Hinduism.
asi_monu_whs_cholabt.asp>. is.
2
= œ   ”   %@ =  Q
Notes It is synonymous with Shakti, the female
1
Saivism, is one of the four most widely aspect of the divine, as conceptualised by
followed sects of Hinduism, which reveres the Shakta tradition of Hinduism. She is the
 Evolving Models of Site Management in the Indian Subcontinent 125

Management of Living Urban

World Heritage
Kathmandu Valley
.$,:(,6(

ABSTRACT

The unique culture of Kathmandu Valley was created due to its location
within the geological and geo-political setting in the foothills of the
mighty Himalayas. The historic buildings were maintained through
traditional community based systems. The need for cyclical renewal
due to recurring earthquakes and the impact of climate on construction
materials has recently led to discussions on authenticity. Seven monument
zones within the Kathmandu Valley were inscribed on the UNESCO
World Heritage List in 1979, but management frameworks and processes
            
_  Y``X           
Kai Weise is a Nepali national of Swiss origin, safeguarding historic cities while keeping them vibrant and bustling.
who holds a Masters Degree in Architecture There are several lessons may be learnt from the decade long experience
from the Swiss Federal Institute of Technology, with establishing and reviewing the management of the Kathmandu Valley
Zurich. Over the past 20 years he has worked World Heritage Property.
on architecture and planning projects along
the Himalayas. Kai has been facilitating the INTRODUCTION
establishment of management systems for
World Heritage properties such as Kathmandu Living cultural heritage is dependent on ensuring that the community
Valley, Lumbini and Samarkand. that created and maintained the heritage over centuries continues to do
126 Evolving Models of Site Management in the Indian Subcontinent

The tiered temples on Taumadi Square, Bhaktapur

so while adapting to changing circumstances. Over the     )     
             the boundaries and buffer zones and establishing an
heritage has changed dramatically. The understanding Integrated Management Plan (IMP), the property was
of conservation began with a clearly monument centric taken off the Danger List in 2007. However the work
concept of heritage. This approach has slowly changed on improving and augmenting the Management Plan is
with importance being given to community and related currently still ongoing.
intangible aspects of heritage, including the concept
of cultural landscapes, historic towns, routes and even CONTEXT AND HERITAGE OF
industrial heritage. The discussion on tangible cultural KATHMANDU VALLEY
heritage has been linked to the discussions on intangible
heritage and cultural diversity. The Himalayan region is characterised by a mosaic of
diverse landscapes, climates, ethnicities and cultures.
Kathmandu Valley was inscribed on the UNESCO The creation of this fascinating landscape is due to the
World Heritage List in 1979 as a single site with collision of the Indian and Eurasian tectonic plates.
seven monument zones. The property was inscribed As the mountains were formed, a climatic barrier
under criteria (iii), (iv) and (vi), which means that the was created with the northern areas drying up and the
value of these sites is based on their living culture, the   (=    ' '  
architectural ensembles themselves and the association precipitation. Several lakes were created within the
to the belief, art and other intangible attributes of the valleys and the lake of Kathmandu Valley is believed
urban heritage. Due to uncontrolled growth and loss to have drained out over the past 30,000 years. The fact
of historic fabric, Kathmandu Valley was inscribed on   '     =     (
the List of World Heritage in Danger in 2003. By this not only in creating the natural environment within the
time, an entirely new approach was needed to address Valley, but also the culture of the inhabitants. It has been
the management issues arising from an urban site recorded in the ancient texts of the Svayambhu Purana1
 Evolving Models of Site Management in the Indian Subcontinent 127

that the Kathmandu Valley was the kingdom of the The indigenous Newari3     ' 
water serpents Naga-Vasa-Hrada. Legend has it that contradiction between a highly developed urban
after the Bodhisattva Manjushri2 cut through the hills culture and a highly developed farming culture. The
to drain the valley, the infuriated water serpents whose amalgamation of Hinduism and Buddhism into their
habitat had been destroyed brought about alternate social structure was also a unique feature. The religion
   (    and festivals of Newars, based primarily on an agrarian
lifestyle were manifested in the urban setting. The
Over centuries, people migrated to this fringe area traditional setting of compact settlements was created
between the ancient cultural spheres of South Asia and on the tars (elevated land), leaving the dolchetra
#    ' )    ( )      (          
or in search of new prospects. The Himalayas have            
been both a climatic barrier as well as a cultural barrier  )  '      "
where the amalgamation of cultures has taken place streets were lined with three to four storeyed buildings
on the fringes of the settlements in India and China. forming a distinct street façade. The central area was
They brought with them their religion, language, usually an open space where the temples and a pond
craftsmanship and enterprise. Where the economy were situated.
allowed, forms of settlement and shelter developed
expressing the more complex character of a civilisation. During most of the period between the 14th and 18th
This process can be observed in the Kathmandu century, there were three cities within the valley under
Valley where economic surplus was achieved the Malla4 dynasties that competed with each other to
through intensive farming of the fertile land and build elaborate palaces and temple complexes in the
trans-Himalayan trade. The compact urban structure surrounding squares. The tiered temple architecture
  '      '    with intricate wood carvings developed as a unique
originated from Buddhist viharas (monasteries). style within the valley. In addition to the complex

Chusya Bahal, an original courtyard monastery in Kathmandu

128 Evolving Models of Site Management in the Indian Subcontinent

systems of ornamentation, Newari craftspeople go towards the maintenance of that particular building
developed ingenious methods of seismic design. and the continuation of other rites and rituals associated
with it. The conservation practiced through guthi
Under the Shah5 dynasty, especially in the 18th and 19th system is at the root of the large inherited culture of the
century, some examples of a new style of architecture Katmandu Valley.
)  ( '  J   '   
India. In the late 19th century the Rana6 prime ministers According to Bista (1967, p.27), ‘guthis are of three
took over power and introduced huge palaces in white types: religious, functional and social’. All community
stucco and European designs, imitating British colonial work and activities were organised in the form of guthis
architecture in India. and the social networks formed by these organisations
ensured the upkeep of religious, social and cultural
TRADITIONAL COMMUNITY BASED activities and traditions. ‘The network of such guthi
CONSERVATION institutions bound the Newars together at the three
levels of caste, patri-lineal grouping and territory’
The strong social integrity within the Newari (Nepali 1965, p.191).
community was largely due to the socio-religious
organisations called guthis. A guthi is essentially a The patronage to the guthis was often performed
common interest group with collective responsibilities by the royal families, even during the Malla period.
and privileges devised to enable the individual or However, during the late 19th and early 20th century, a
     '    )'  +           )     
obligations through group action. The founders of a guthi land. The Guthi Corporation was established in
guthi usually donate some property as an endowment 1964, consolidating all guthis to a centrally organised
and the revenue generated from tilling this land would unit. The Guthi Corporation’s role has been to preserve
cultural heritage, monuments, religious buildings,
ancient ornaments and articles of religious and
cultural importance along with the task of ensuring
that religious rites and festivals are performed. The
legislation also prohibits sale of land belonging to
temples or spaces for public festivals and worship.

Traditionally, the guthis were run by the community.

After being nationalised as part of the Guthi
Corporation, they lost their traditional identity and
have become non-operational to a large degree. The
) )   )     
Corporation due to encroachment and illegal sale of
guthi  =  > )  *  ( 
increased overhead costs and expenses for special
materials and labour required for festivals. For
example, during the Macchindranath festival special
rope is needed to construct the chariots that is not
available in Nepal any more. The community members
responsible for the construction of the chariots have
a monopoly and demand high remuneration for their
work. Additionally, when the chariot is pulled around
the city, it often topples over, damaging nearby
buildings. Traditionally this was considered good luck.
However, today even for minor damages compensation
is demanded.

The lack of clarity in function and ownership has

raised concerns. The Guthi Corporation has taken
Swayambhu Mahachaitya over certain community responsibilities but is not in a
 Evolving Models of Site Management in the Indian Subcontinent 129

Hanuman Dhoka Durbar Square, Kathmandu

position to raise the required resources to implement side. Horizontal wooden beams placed within the wall
their duties. On the other hand, The Ancient Monument '     ==   (  
Preservation Act 1956 has empowered the Department for certain movement. However, photographs from
of Archaeology, Government of Nepal to take over the 1934 earthquake show that earthquakes of greater
responsibilities for any building or ensemble that is intensity led to the total collapse of these buildings.
over 100 years old.
In the late 19th century, a new style of architecture
ADAPTING TO AN EARTHQUAKE was introduced with an eclectic mix of Neo-Classical
PRONE AREA European architectural language, today referred
to as the Rana Style. These buildings did not fare
The Kathmandu Valley is especially prone to disasters very well during earthquakes. However, being the
caused by earthquakes due to its geophysical formation architecture that was in vogue at the time, most of the
and its soil conditions. On average, an earthquake of reconstruction that took place after the 1934 earthquake
magnitude greater than eight on the Richter Scale has was carried out in this style.
been recorded in the Valley in the past centuries. In
    ) )   ~'  (   Assessing the ‘cyclical renewal’ efforts undertaken
There is much to learn from the response of the after the 1934 earthquake gives an idea of the scale
inhabitants over the centuries to this hazard, both in of the destruction that ensued, as well as the need for
terms of how the traditional buildings developed as resources and preparedness to carry out restoration
   Z'  Y         works. The examples of the 55-Window Palace, the
Fasi Dega Temple, the Hari Shankar Temple and
In terms of structural construction, the Newari the Chyasilin Mandap in Bhaktapur illustrate the
buildings are designed to perform well during smaller        =   
earthquakes. Smaller movement is taken care of by the 1934 earthquake. The 55-Window Palace was
running the wooden beams through the walls and reconstructed soon after the earthquake using the
*             original wood elements, however these were often laid
130 Evolving Models of Site Management in the Indian Subcontinent

   )         MANAGEMENT SYSTEM TO

in a later restoration project. The Fasu Dega Temple, SAFEGUARD OUV
located to the east of the palace was completely
 '   '  )        Kathmandu Valley was inscribed on the World Heritage
&          ))   List in 1979, as a ‘multiple resource nomination’,
simple dome shaped structure was built on the historic referring to the seven monument zones: three Durbar
plinth to protect the deity. The Hari Shankar Temple Squares of Hanuman Dhoka, Patan and Bhaktapur, two
was also completely destroyed and only the entrance Buddhist Stupas of Swayambhu and Bauddhanath and
sculptures remain. Though there was photographic the Hindu temple complexes of Pashupati and Changu
evidence of the temple, this structure was never Narayan. The monument zones of Kathmandu Valley
reconstructed, probably due to the fact that the statue were considered to be of Outstanding Universal Value
of the main deity was also lost. On the other hand, the %!~          
octagonal Chyasilin Mandap was reconstructed by follows at the time of inscription:
a German company using concrete and steel, half a (iii) Be unique, extremely rare, or of great antiquity, (iv)
century after its destruction, to restore the integrity of be among the most characteristic examples of a type of
the square. structure, the type representing an important cultural,
              
The great earthquakes that have ravaged the city development and (vi) be most importantly associated
over the centuries have been followed by a period of with ideas or beliefs, with events or with persons,
reconstruction. This process of cyclical renewal has         )     
been an integral part of the development process of the (Department of Archaeology 1979).
cultural heritage of the Kathmandu Valley. It has also
taken care of the requirement for regular restoration With uncontrolled urban growth within the Valley,
of monuments. Efforts in conserving the built heritage concerns arose for the preservation of the monument
within the Kathmandu Valley must therefore take zones. Already in 1992, the possibility of endangered
the concept of cyclical renewal into account, without listing was contemplated. After years of discussing the
necessarily strengthening these structures using modern status of the Kathmandu Valley, at the 27th session of
technology to achieve a greater earthquake resistance. the World Heritage Committee in 2003, the property
The close link between heritage and disaster risk was inscribed on the List of World Heritage in
) )       ˆ ) &    Z         
Valley and needs to be maintained. vernacular heritage since the time of inscription

Musical procession in Bhaktapur The Seto Macchendranath chariot in

Kathmandu Durbar Square
 Evolving Models of Site Management in the Indian Subcontinent 131

After the 1934 only the lions protecting the entrance steps of the Hari Shankar Temple remain. In the background the sanctum of the
Fasu Dega Temple was protected with a simple structure

resulting in a general loss of authenticity and integrity the world, comprising of seven monument zones,
of the property as a whole’. As a precondition for     ) ) † )  #
the removal of the property from the List of World monument zone contributes to the OUV of the World
Heritage in Danger, the State Party was recommended Heritage property, though the threat to each monument
  '        zone is different in form and degree. The aim of the
zones of all monument zones based on the remaining IMP was to develop a framework for the integration
OUV, accompanied with management mechanisms of the seven monument zones within a single system,
to adequately conserve the remaining World Heritage =           ) )
values of the property in the long term. The State Party requirements.
was also recommended to consider new criteria and an
appropriate name (World Heritage Committee 2003). Management Plans of World Heritage properties
are frameworks and processes with the objective to
The World Heritage Property within the Kathmandu safeguard their OUV. Management systems are based
Valley is probably one of the most complex sites in on two components; processes that are a series of
132 Evolving Models of Site Management in the Indian Subcontinent

The seven monument zones of Kathmandu Valley

KATHMANDU VALLEY

CENTRAL
DEPARTMENT OF ARCHAEOLOGY
UNESCO

GOVT
WHC

World Heritage Section

Kathmandu Lalitpur Site Bhaktapur
    

COORDINATIVE WORKING COMMITTEE

Authorities Line Agencies

LOCAL
Associated Government

MANAGER GOVT

Kathmandu Lalitpur Sub- Bhaktapur

Metropolitan City Metropolitan City Municipality
Heritage Changu
Building and Heritage
Section Narayan
Heritage Conservation
VDC
SITE

Division PADT Section

HDCP FSMC BADC

INTERFACE BETWEEN SITE MANAGERS & COMMUNITY
Bhaktapur Durbar

Changu Narayan
Hanuman Dhoka

MONUMENT
Durbar Square

Bauddhanath

Patan Durbar
Swayambhu

Pashupati

ZONES
Square

Square

The institutional framework

 Evolving Models of Site Management in the Indian Subcontinent 133

Management Process
The Site

Information
INSTITUTIONAL Management
Frameworks
ISSUES Traditional
ACTIONS Management LEGAL
System
ECONOMIC
Decisions

Management Processes

           (   = ) )   )         
information and frameworks that are pre-established focused on the actual management of the heritage
institutional, legal and economic parameters for the   +    ' ) ))    
processes. action plans, along with capacity building and training.
               
The process of preparing and establishing the ) ) ' )    *   ' 
management system was carried out between 2004 and the Kathmandu Valley World Heritage Property.
2007, leading to the removal of the Kathmandu Valley The Integrated Management Framework (IMF) for the
from the List of World Heritage in Danger in 2007. Kathmandu Valley was passed by the highest authority,
According to the evaluation report (Okahashi & Stovel the Cabinet of the Government of Nepal (Government
2006, p.4) of Nepal 2007, p. 13), stating that:
In brief, the establishment of the IMP of the Kathmandu The primary objective of the Integrated Management of
Valley could be seen as a model process for all World the Seven Monument Zones of the Kathmandu Valley
Heritage Management Plans. It is not a study document is to protect the Outstanding Universal Value of the
to describe the site or to provide ideals for the site- World Heritage property as well as the locally recognised
management, but has gone through a thorough process of heritage values, while taking into account the standard of
site-based information gathering and commitment by the living, safety and economic viability of the community
concerned site-management authorities and the draft has living within the World Heritage property.
incorporated the viewpoints and realistic possibilities of
the complex management structure. The principles that were to be observed in achieving
the management goals were:
This model process of establishing the IMP can be x     
broken down into clear stages and components. The x Integrated approach
             ' x Process oriented
by understanding the attributes that express the value x Bottom-up approach
of the property, by documenting these attributes and x Promote local empowerment
' )       ) )  „ x Socially and economically sustainable.
on this information, in the second stage of analysis, a
conservation approach was developed, along with a KEEPING HISTORIC CITIES ALIVE
graded inventory and clear objectives of the required
management system. This was the basis for the third As per the requirements of the IMF, the entire
stage focusing on establishing the management system management system of the Kathmandu Valley needed
comprising of frameworks and processes along        '    
with establishing linkages between the all related begun in 2012 with meetings of the Coordinative
stakeholders. The fourth stage focused on integrating Working Committee (CWC) at each of the monument
this system into the overall governance structures of the zones. Each of the monument zones had their own
area, especially focusing on urban planning, disaster list of issues that needed to be addressed. This
134 Evolving Models of Site Management in the Indian Subcontinent

could only be possible if the system ensured that the    ))      
management allowed for the local site managers to ))  ) )     
communicate directly with the community, monitor implications of conserving a heritage property
activities regularly and determine a realistic approach have always been an important factor. This initiates
to addressing such issues. To make sure that such discussions on sustainable development and culture for
activities are appropriate for a World Heritage property development. Conservation must take into account the
and as per the approaches laid down in the IMF, it is    †  '         
an imperative that site managers discuss this during the is required between allowing life in the city to continue
CWC meetings together with the national authority, functioning without being smothered, while ensuring
the Department of Archaeology as well as the site that the main attributes conveying the value of the
managers of the other monument zones. heritage are safeguarded.

The issues raised were often linked to appropriate

means of carrying out development works, restoration

2
Bibliographic references Kathmandu, Nepal. Manjushri is the Bodhisattva of
x Bista, DB 1967, People of Nepal, x Proksch, A and Baidya, HR, GTZ & Urban Transcendent Wisdom. His name is a
Department of Publicity, Ministry of Development through Local Efforts 1995, compound of the Sanskrit words Man-ju
Information and Broadcasting, His Majesty’s Images of a Century: The Changing (charming, beautiful, pleasing) and Shri
Government of Nepal, Kathmandu. Townscapes of the Kathmandu Valley, GTZ, (or Sri, meaning glory, brilliance). The
x Department of Archaeology 1978, Kyrgyzstan. combination of both these words conveys
Nomination Document for the Kathmandu x Richter, 1956, Elementary Seismology, W H the kind of intelligence and wisdom
Valley World Heritage Site, Unpublished, Freeman & Co., San Francisco. Manjushri represents.
Government of Nepal, Kathmandu. x Sharma, DR and Shrestha TB 2007, Guthi: 3
The Newa people or Newars are the people
x Department of Archaeology, 2007, The Community-based Conservation in the of the Kathmandu Valley in Nepal and the
Integrated Management Framework Kathmandu Valley, Unpublished, UNESCO creators of its historic civilisation.
4
Document for the Kathmandu Valley World €  ^ &Q The Malla Dynasty was a ruling dynasty of
Heritage Site, Unpublished, Government of x Smith, WW 1978, Mythological History of Nepal from the 12th to the 18th century. It
Nepal, Kathmandu. the Nepal Valley from Svayambhu Purana, was during their reign that the people living
x Government of Nepal 2012, Nepal Avalok Publishers, Kathmandu. in and around the Kathmandu Valley began
Population and Housing Census Report x World Heritage Committee, 2003, to be called ‘Newars’.
5
2011, Central Bureau of Statistics, Nepal. Decisions of the 27th Session of the The Shah dynasty was a ruling dynasty of
x Nepali, GS 1965, The Newars: An World Heritage Committee, Unpublished, the small Gorkha kingdom until 1768 and
Ethno-Sociological Study of a Himalayan UNESCO Headquarters, Paris. the ruling dynasty of Kingdom of Nepal
Community, Unit Asia Publications, Bombay, x Weise, KP 2005,Kathmandu Valley World from its inception in 1768 to the end of the
India. % Q&>     monarchy in mid-2008.
x Okahashi, J and Stovel, H 2006, Mission Zone Boundaries, Unpublished, UNESCO 6
The Rana dynasty was a Hindu Rajput
Report to Kathmandu Valley June 2006, €  ^ &Q dynasty that ruled the Kingdom of Nepal
Unpublished, UNESCO WHC/ICOMOS, from 1846 until 1951, reducing the Shah
New Zealand. Notes     ” ˆ  
x PAHAR Nepal 2004, >   1
Swayambhu Purana is a Buddhist scripture Minister and other government positions
Monument Zones of the Kathmandu Valley about the origin and development of hereditary.
World Heritage Sites; An Independent Kathmandu valley. Swayambhu Purana
Survey & Evaluation Report on the Present gives detail of all the Buddhas who came to
Status of the KVWHS, Unpublished, Kathmandu.
 Evolving Models of Site Management in the Indian Subcontinent 135

Managing World Heritage

Properties in Madhya Pradesh
9,6+$.+$.$:$7+(.$5

ABSTRACT

With recent efforts towards nominating more Indian heritage sites to

the World Heritage List, it is imperative that these be appropriately
managed, in order to maintain their Outstanding Universal Value (OUV).
Quite a few challenges in managing these properties are generic across
Vishakha Kawathekar is a conservation  #             #
architect, with wide experience of national and legislation, missing use of customary laws and practices in heritage
international projects. She currently teaches in management. Efforts are in progress towards effective management, with
School of Planning and Architecture, Bhopal. increased emphasis on documentation and putting management systems
Her doctoral research is on ‘Relevance of the in place. The perception of protection has evolved, having expanded to
Ancient Monuments and Archaeological Sites maintenance of values of the property and management that ensures that
and Remains Act 1958 with its amendments the OUV of the property is not compromised. Hence, tools like heritage or
and its applicability in the changed scope and cultural impact assessment are becoming mandatory. An examination of
           these evolving models of World Heritage management through examples
its protection’. Her research concentrates of World Heritage properties in Madhya Pradesh enables a better
on traditional knowledge systems and works understanding of the scenario.
associated with perception, interpretation and
memory. She is the Principle Investigator to INTRODUCTION
institutional projects including Heritage Impact
Assessment for the Khajuraho World Heritage The representation of cultural heritage sites inscribed as World Heritage
Site and Ashapuri Temple Project. from a particular country contributes to the strengthening of its national
136 Evolving Models of Site Management in the Indian Subcontinent

identity and marking the presence of the country on    )  )) (  
the global map. In turn, the nation must share the poverty, lack of political will, lack of awareness of the
responsibility of ensuring that their OUV is maintained value of heritage, low levels of funding, inadequate
and the sites are safeguarded and managed through expertise and equipment and lack of inventories.
appropriate frameworks.
The challenges of management of WHS in Madhya
There is no special legal provision for World Heritage Pradesh have been discussed through the case of
sites in India. The current legislative provisions Buddhist Monuments at Sanchi, Rock Shelters of
are geared towards protecting single or collective Bhimbetka and the Khajuraho Group of Monuments.
monuments without taking into account the context
or the extant built environment, thus making BUDDHIST MONUMENTS AT SANCHI
management of the values of the World Heritage sites
      )       The World Heitage Site of Sanchi comprises of a group
conservation areas is not yet a standard practice many of Buddhist monuments: monolithic pillars, palaces,
a times heritage legislation and planning laws tend to temples and monasteries. Most of these date back to
  (      ))           ' „$     
the pre-existing Act1 governing monuments and sites states of conservation. The oldest Buddhist sanctuary in
of national importance is geared to address this gap, existence, it was a major Buddhist centre in India until
though a successful example of its implementation is the 12th century AD. The site has a potential of being
yet to be seen. The other factors that threaten World a cultural landscape due to dotting stupas (mound-like
Heritage sites in India include environmental pressures, or hemispherical structure containing Buddhist relics)

Rock painting similar to the Rock Shelters of Bhimbetka in a cave shelter near the Buddhist Monuments at Sanchi. More
explorations, research and protection of these shelters required as technical studies on these paintings. Source: Shri Ajoy K
Bhattachary
 Evolving Models of Site Management in the Indian Subcontinent 137

in its immediate vicinity and its close relationship

and proximity to River Betwa, the town of Vidisha,
rock cut industry, rock shelters and rich vernacular
            
strong connection to Sri Lankan Buddhist pilgrimage
circuit. The inscriptions, sculptures and panels have
been extensively interpreted for the depiction of
mythology and Jataka tales2. Yet, the value in terms of
human record of life style, architecture, plant species
and landscape features during the Vedic times depicted
on the panels still needs to be explored. There is a
potential to work on additional contributions to the
value and knowledge about the site, beyond what it has
been nominated for.

In order to preserve the richness of the property,

the management strategy must look into regional
settings and site level management. While there is
ample signage at the site, there is a stark requirement
for a state of the art interpretation centre at the site.
Appropriate approach towards physical conservation
            The carvings depicting a royal person passing through the city
sharp edges needs to be put in practice3. Extensive gate in a chariot followed by a retinue, while citizens watch
at Bhimbetka
efforts have gone into involving community into
the management of the site, yet formal platforms of
engagement need to be developed. With respect to of three major components: ecology and environment,
control and developments in the buffer area, legal cultural content and tribal settlements or villages. The
provisions of acceptable architectural practices must be management of the site is an imposing challenge, as
formulated and disseminated to the people residing in the ownership of the nominated area and the buffer
the nearby villages. zone is in the hands of multiple agencies and their
standards of protection vary. The core of the nominated
ROCK SHELTERS OF BHIMBETKA area has been declared as protected and managed by
Archaeological Survey of India (ASI), while the other
The nominated Rock Shelters of Bhimbetka lie within areas are largely with the State Government of Madhya
the Vindhyan Hills, comprising of an area of massively Pradesh. The buffer areas fall within the boundaries
sculpted sandstone rock formations clustered around of reserved or protected forest of Ratapani Wild Life
Bhimbetka Hill near Bhopal. The area has abundant Sanctuary. The Government of Madhya Pradesh is
natural resources, perennial water supplies, natural a major partner in management of ecological and
      (        environmental aspects through the Department of
plenty seem to have been conducive to the development Forest and in the management system with respect to
of sustainable and persistent societies and the creation Revenue lands, through the Department of Revenue.
of notable rock art. The cultural traditions of the
inhabitants of around 21 villages adjacent to the site Monitoring of the site is the key tool for management.
bear a strong resemblance to those represented in the Some models like monitoring of garbage during one of
rock paintings. the major festivals, opening of a community museum
and making different rock shelters accessible to the
         =     public at different time periods to enable preservation
one large complex in the buffer zone. The rock shelters and prevent deterioration of the caves and paintings
display persistent traditions of rock painting, spanning are being worked out.5 There is a community residing
periods from the Mesolithic4 to the Historic. They in around the 21 villages, with its living cultural
display richness and variety of mural subjects and form practices that include customary laws and management
one of the densest known concentrations of rock art, as   '            
a collection. The Rock Shelters of Bhimbetka comprise management systems and controls for protection.
138 Evolving Models of Site Management in the Indian Subcontinent

Site plans showing the mitigations proposed for the Eastern and Western Group of Temples
Source: HIA Khajuraho World Heritage Site, ASI, Bhopal Circle
 Evolving Models of Site Management in the Indian Subcontinent 139

As soon as restrictions on usage of the landscape with indicating the mitigation measures that would
are imposed, the interdependence of nature and the ensure its protection. The HIA also sets out criteria
community starts dissolving, creating an imbalance. that have been recorded as the basis for the inscription,
hence contributing to its OUV8. General principles
KHAJURAHO GROUP OF MONUMENTS of mitigation for heritage features were to evaluate
the location of various infrastructure facilities on the
It consists of temples in three groups, namely Western site and to suggest the reduction or avoidance of the
Groups of Temples with 13 temples in 11.31 hectares potential effect by mitigating the effect through better
of protected area and 120.58 hectares regulated planning. The means would be reduction or adjustment
area6, Eastern Group of Temples with nine temples in of tourist infrastructure away from resources and
1.73 hectares of protected area and 164.88 hectares investigation of features, primarily archaeological,
of regulated area and Southern Groups of Temples                
with two temples in 1.82 hectares of protected area informing further mitigation.
and 77.82 hectares of regulated area. Apart from the
protected area the World Heritage Site should include Given that the site and its OUV comprise the sum
archaeological mounds and landscape features like of its component heritage features, the assessment
water tanks as an integral part. The three different of individual impact is valid for the purposes of
group of Temples lie between living community areas this assessment. However, consideration is given to
and areas of commercial expansion that comprise of )    %!~           
the service industry including high end hotels. This report was submitted on September 14, 2012 after
gives rise to multiple layered problems and needs consultations and is now legally adopted. The case of
cooperation from local authorities as well as decisions HIA for Khajuraho Group of Monuments was presented
at the local, regional and national level for the overall by N Taher, ‘Superintendent Archaeologist, ASI
management. For example, impact of vibration caused Bhopal Circle at the course on HIA organised by the
'       ))     International Centre for the Study of the Preservation
and location of airport needs to be closely monitored. and Restoration of Cultural Property (ICCROM) and
This site needs a comprehensive management plan and World Heritage Institute of Training and Research for
explicit monitoring at various levels of management.      ƒ    ? ƒ   
and the proposed mitigations were highly appreciated.
Due to popularity of the site, huge investments poured
in, as in case of the Proposed Tourist Infrastructure The HIA for the Khajuraho World Heritage Site is a
Development of Khajuraho, a project under ASI- rare example with potential to become trend setter.
National Culture Fund and Indian Oil Foundation. This It has given an opportunity to mitigate and reduce
project includes provision of a visitor facility centre for the probable impact. As a result, it has been possible
Eastern and Southern group of temples and other visitor to take corrective measures before any irreversible
requirements such as parking along with upgradation damage to the OUV of the site could take place.
of existing visitor utilities like the toilets. Other focus
areas are development of main access to the core area, THE WAY FORWARD
preparation of a signage plan and evacuation plan for
the Western Group of Temple in case of emergencies. Management of World Heritage sites in India has
Fortunately, a Heritage Impact Assessment (HIA) was catalysed the notion of heritage protection to two main
undertaken before decisions for implementations were aspects of maintenance and management, inclusive of
taken, to address the potential impacts of the proposed change and development till the OUV of the site is not
tourist infrastructure facilities upon the built heritage hampered. The adequacy of the efforts is questionable
and archaeological and historic landscape features towards their effective implementation. There is a
contributing to the OUV of the Property7. lack of constant research on the philosophical and
  )=       
The HIA evaluated if the OUV of the site would be its protection, ensuring maintenance of values and
impinged upon and how the interventions would impact physical structure of heritage and management. The
the World Heritage Site. It analysed the visual impact need is to look back at the ancient knowledge and bring
of the proposed development and physical impact as forth the traditional as well as architectural knowledge
a result of provision of access to the people and risk systems to deal with the maintenance and management
preparedness measures, on the OUV of the site, along of built heritage.
140 Evolving Models of Site Management in the Indian Subcontinent

The three examples from Madhya Pradesh point management related policies and their implementation
            at Bhimbetka and Khajuraho. All three World Heritage
management of World Heritage sites in the Indian sites illustrate the need for a good interpretation centre
context. The cases of Sanchi and Khajuraho press and adequate visitor facilities.
             
*             The model presented by the HIA for Khajuraho
site. The Bhimbetka World Heritage Site illustrates World Heritage Site presents a way forward, where
how customary laws and practices need to be       '     )=
incorporated into current management of surrounding including of impact studies for any form of mitigation
areas through community involvement and increased possible that enables the continuity of the OUV of the
physical and intellectual accessibility. Bhimbetka and site. Lessons can be learnt from the cited examples
Khajuraho present the case for multiple agencies of and applied to similar cases across the country, as long
implementation and coordination required at all levels as the main concern remains on understanding of the
of management from local to national. For Bhimbetka, OUV and maintaining the same through development
there is an emphasis on the need for calculating of frameworks that are compatible with the local
carrying capacity and impact assessments. To manage conditions and cultures.
)        )     

Bibliographic references Centre, Paris, viewed 16 January innovation and diversity than is found in the
x ICOMOS, 1964, Venice Charter: 2011, <http://unesdoc.unesco.org/ Paleolithic.
5
International Charter for the Conservation images/0013/001325/132540e.pdf >. Only one cave cluster is accessible to the
and Restoration of Monuments and Sites, public at the moment. The views for future
ICOMOS, Venice, viewed 16 January Notes management strategies were shared by
1
2010, <http://www.icomos.org/docs/venice_ The Ancient Monuments and Archaeological Shri S B Ota, Regional Director ASI (Central
charter.html>. Sites and Remains Act 1958 (AMASR) is Region) on the academic platform giving
x Kakar, S & Kakar, K 2009, The Indians the legislation for safeguarding nationally insight to the complexities in heading a
Portrait of a People, Penguin books, New protected heritage sites in India, till The multidisciplinary team in the management of
Delhi. Ancient Monuments and Archaeological World Heritage Site of Bhimbetka.
x Khilnani, S 2004, The Idea of India, Penguin Sites and Remains (Amendment and 6
Protected area as per the provisions of
books. New Delhi. Validation) Act 2010 came into existence. AMASR is the Core area of the Khajuraho
x Tharoor, S 2007, India from Midnight to the 2
 " Œ‘ ”         World Heritage Site. Regulated area as per
Millennium and Beyond, Penguin books, the previous births of the Bodhisattva. the provisions of AMASR is the Buffer area
New Delhi. These are the stories that tell about the of the Khajuraho World Heritage Site which
x UNESCO WHC 1972, Convention previous lives of the Buddha, in both human includes an area of minimum 300 metres
Concerning the Protection of the World and animal form. The future Buddha may from the protected area.
7
Cultural and Natural Heritage, UNESCO appear in them as a king, an outcast, a HIA for the Khajuraho World Heritage Site
World Heritage Centre, Paris, viewed 30 god, an elephant-but, in whatever form, he has been prepared by SPA, Bhopal, on
March 2009, <http://whc.unesco.org/en/ exhibits some virtue that the tale inculcates. behalf of Archaeological Survey of India
3
conventiontext>. The conservation of the loss of sharp edges (ASI), Bhopal Circle.
x UNESCO WHC, 1994, The Nara Document      &  ‚  @  8
HIA, Khajuraho World Heritage Site gives
on Authenticity, ICOMOS, UNESCO WHC, no or minimal use of chemicals or abrasive details of the planning and legislative
Government of Japan, viewed 20 December methods of cleaning. background, the assessment and the
4
2011, <http://www.google.co.in/search?clie Mesolithic Period, also called Middle Stone methodology of assessment and baseline
nt=safari&rls=enus&q=nara+document+on+ Age, ancient cultural stage that existed conditions, in so far as these are relevant to
authenticity&ie=UTF-8&oe=UTF-8&redir_es between the Paleolithic Period (Old Stone the site.
c=&ei=C8rxTpXSGYaHrAfn3tDbDw>. Age), with its chipped stone tools, and
x UNESCO 2003, Convention for the the Neolithic Period (New Stone Age),
Safeguarding of the Intangible Cultural with its polished stone tools. Mesolithic
Heritage, UNESCO World Heritage material culture is characterised by greater
 Evolving Models of Site Management in the Indian Subcontinent 141

Jantar Mantar, Jaipur

Implementing the Management Plan
6$/$+8',1$+0('

ABSTRACT

Jantar Mantar, Jaipur was inscribed as a World Heritage site in 2009,

which had been designated as the ‘Year of Astronomy’ by UNESCO.
Since its inscription there has been a concerted effort by the Government
of Rajasthan to safeguard the site and its buffer zone and promote
  }~  " =   ~   
"  Y``€   " "     
since been updated and revised. Three secondary plans addressing
aspects of interpretation, mobility and site planning and landscaping
have been developed, linking to the objectives of the Management Plan
and a fourth plan addressing disaster risks to the site is currently being
proposed as well. Jantar Mantar, Jaipur is one of the few World Heritage
sites in India where the Management Plan is promulgated through the
Salahudin Ahmad retired as Chief Secretary, Jaipur Master Plan 2025 and it is being systematically implemented in a
Government of Rajasthan in 2012. He is phased manner.
currently the Chairman, Executive Committee
Rajasthan Heritage Development and NOMINATION TO INSCRIPTION (2009-2010)
Management Authority and has steered several
conservation projects in Rajasthan in his earlier The nomination of Jantar Mantar, Jaipur for World Heritage site status in
capacity as Principal Secretary, Department 2009 marked a point in time when methods, policy and funding combined
   “   ^#‚  to facilitate this momentous step forward to meet the enlisted objectives
Development and Management Authority. by UNESCO for the ‘Year of Astronomy’. The statement of Outstanding
142 Evolving Models of Site Management in the Indian Subcontinent

Universal Value (OUV) adopted by UNESCO World and Museums, Rajasthan which is responsible for
Heritage Committee for the inscription of Jantar Mantar its protection under The Rajasthan Monuments,
in July 2010 summarises the selection criteria as: Archaeological Sites and Antiquities Act, 1961. The
Criterion (iii): The Jantar Mantar in Jaipur is an       ) )  
outstanding example of the coming together of observation indicated the need of a comprehensive approach for the
of the universe, society and beliefs. It provides an long term functioning and sustainability of the site that
outstanding testimony of the ultimate culmination of was later addressed through a Management Plan for the
             site submitted during its nomination. For sustainable
observatory devised in the medieval world. It bears and integrated development of the property, the plan
witness to very ancient cosmological, astronomical and   ' )        ' )
       '  )>     January 2009 to December 2013. It was subsequently
Middle Eastern, Asian and African religions, over a period revised in July 2009 and in July 2010, to accommodate
of more than 15 centuries.       ))  
Criterion (iv): The Jantar Mantar in Jaipur is an the World Heritage Committee for its inscription as
outstanding example of a very comprehensive set of a World Heritage site. These included the expansion
astronomical instruments, in the heart of a royal capital at of the buffer zone, assigning implementation of the
the end of the Mughal period in India. Several instruments Management Plan to ADMA with involvement of
are impressive in their dimensions, and some are the Archeological Survey of India (ASI) in order to
largest ever built in their category. facilitate coordinated management of the property and
its buffer zone as well as revisions to the Action Plan
Inscription of Jantar Mantar, Jaipur on World Heritage with a framework of proposed secondary plans to be
List was the beginning of a tremendous responsibility prepared under the aegis of the Management Plan.
for the Rajasthan Heritage Development Management
Authority (RHDMA) previously known as the Amber IMPLEMENTATION OF THE
Development and Management Authority(ADMA), MANAGEMENT PLAN (2010 ONWARD)
which was assigned the mandate of protecting the
OUV of Jantar Mantar and ensuring an effective The Management Plan for Jantar Mantar, Jaipur
implementation of its Management Plan by the is under implementation in conjunction with
Government of Rajasthan, India. other conservation and tourism plans for the site
surroundings and the historic core of the city of Jaipur.
The journey to ensure appropriate conservation of this Along with articulating a vision for protecting the OUV
 '       '     ' of the World Heritage site, this management plan has
the stakeholders as early as 2005. A Conservation Plan the following objectives:
for the site was prepared in 2005-06 and implemented œ   '        
in 2007-08 by the Department of Archaeology management of the property and buffer zone

PRIMARY PLANS

CONSERVATION PLAN MANAGEMENT PLAN

(Prepared in 2005-2006, under implementation since (Prepared in 2009, revised in July 2010, and updated in
2007, restoration of property completed in 2009-10) March 2012)

Comprehensive Risk Management Plan Interpretation Comprehensive Mobility

Landscape and (2011-2013) and Visitor Management Plan
Environment Plan Plan (2010-2012) (2010-2012)
(2010-2012)

SECONDARY PLANS - three out of four completed in March 2012-13

Linkage of the secondary plans with the Management Plan
 Evolving Models of Site Management in the Indian Subcontinent 143

The Jantar Mantar brochure

œ  )    ) )       Interpretation, Use and Visitor Management Plan
ensure the conservation, protection and enhancement ˆ            
of the OUV visitor access and visitor management in the overall
œ  )    '      Management Plan, this secondary plan further
and to provide access to all      >     
programmes outlined for visitor facilitation and
In order to assure an effective implementation of knowledge with the intention to engage all visitors
the Management Plan, the Government of Rajasthan            ) 
announced RHDMA as the overarching authority instruments at Jantar Mantar.
for this purpose by extending its area of work was
  '   |     ™  Some of the proposals had already been undertaken
Mantar. RHDMA through a stakeholders committee by the Government of Rajasthan in 2009 such as
)      ƒ  & )  ™  introduction of audio guides for visitors, basic
Municipal Corporation (JMC), Electricity Board, Royal facilities and signage. These were further enhanced
Foundation and other stakeholders in buffer zone has by introducing the signage highlighting the World
steered further detailing of this Management Plan into Heritage status of the site, more visitor amenities in
various secondary plans and thus ensured systematic the property area as well as buffer zone and opening of
implementation of various works in phases. the interpretation centre which is currently in process
of expansion to display historic artifacts and astrolabes
Since 2010, regular meetings of various stakeholders from the 18th century that seem to be sourced by Sawai
       )     Jai Singh II from Persian countries.
for the property and its buffer zone and several works
have been implemented on site in consultation with all While further research is underway on the historic
concerned. The completion of all secondary plans and astrolabes, regular readings are being recorded for all
works undertaken through coordination with various functioning astronomical instruments in the property
departments of State Government, ASI and the Nehru area. Nehru Planetarium, New Delhi is involved in
Planetarium are outlined as below. recording regular readings in order to ensure proper
144 Evolving Models of Site Management in the Indian Subcontinent

             '

area reinforces strong visual and physical links
through sensitive landscape planning and management
while adopting an ecologically sustainable approach,
minimising the use of non-renewable resources and the
impact of tourism on the local environment.

Substantial documentation work has been carried out

in preparation of this plan including a complete record
of all archival images and maps of Jantar Mantar and
its setting, total station surveys and Geographical
Information System (GIS) mapping of property area
and its context to evolve proposals for landscaping
of the buffer zone. Several of these proposals are
under implementation including restoration of historic
properties and facades in the southern side of Jantar
Mantar by RHDMA. Preparation of architectural
control guidelines and reframing of byelaws for the
buffer zone areas under JMC is also underway. Actions
on reducing the impact of the nearby electrical grid
UNESCO signages at Jantar Mantar
sub-station have been undertaken.
      )   )    
report of these readings will be submitted as part of the Comprehensive Mobility Plan
periodic reporting to the World Heritage Committee. This secondary plan includes detailed surveys of
vehicular and pedestrian routes in buffer zone,
Comprehensive Landscape and Environment Plan       Q )     = 
This secondary plan on landscape and environment areas and future proposals for reworking pedestrian
aims to address the physical setting of Jantar Mantar to             
respond to the site’s historic origins and be congruent most challenging plans in terms of its implementation.

Display of astrolabes in the interpretation centre

 Evolving Models of Site Management in the Indian Subcontinent 145

A schematic map of Jantar Mantar as it was documented in the eighteenth century, reproduced from a map
courtesy of the Sawai Man Singh II Museum

A reproduced schematic map of the Jantar Mantar by the late nineteenth century, showing addition of various structures and
the extension to the site during Pratap Singh and Ram Singh II’s reign. Source: VN Sharma, 1997, p.129, Fig. 6-7
146 Evolving Models of Site Management in the Indian Subcontinent

A reproduced map indicating the restoration and additions done during Lt. Garrett’s posting in Jaipur. Addition of pathways can be
observed in this stage. Source: Garrett and Guleri, 1902, Plate 1

A present day map of Jantar Mantar indicating the instruments and the present day landscape of the site
 Evolving Models of Site Management in the Indian Subcontinent 147

A view of Jantar Mantar, with the Brihat Samrat Yantra in the background and the Rasivalaya Yantras in the foreground

Certain experiments to implement parts of this plan FUNDING MECHANISM FOR THE
such as restriction on four wheelers in buffer zone are MANAGEMENT PLAN
       '   =  
such as the existing police headquarters are proposed %   )     )  ' 
to be relocated in future when it will be feasible to Government of Rajasthan for implementing the
implement this plan in totality. Management Plan of Jantar Mantar is a sustainable
funding mechanism. Since handing over the property
Risk Management Plan for management to RHDMA, Government of Rajasthan
The Risk Management Plan is still under preparation passed an order in 2011 that two-thirds of the fee from
and it will cover assessment of risks to the site, Jantar Mantar will be handed over to RHDMA for
especially to the visitors and the OUV of the site. regular maintenance and management of the property
Catastrophic risks resulting from natural and human and buffer zone. This is a very effective way of
 |   '     ensuring long term maintenance of Jantar Mantar.
terrorism will be addressed in this plan through various
prevention and mitigation measures at policy, planning, CONCLUSION
management and technical levels for protecting
the site. The Plan will also elaborate on emergency Jantar Mantar, Jaipur is one of the few World
preparedness strategies such as evacuation routes, Heritage sites in India where the Management Plan
signage and necessary equipments for response during is promulgated through the Master Plan of a city
a disaster. Post disaster recovery procedures for the site and is being systematically implemented in a phased
would also be formulated as part of the plan. This Plan manner through an overarching authority created
will be completed by June 2014. '  Q)  >      
148 Evolving Models of Site Management in the Indian Subcontinent

Proposed circulation through buffer zone of Jantar Mantar

Cultural World Heritage Site in India protected by a commitment to ensure long term protection and
a State Department of Archaeology, while others management of this property in conformation with
are under the ASI. This has instilled a great sense of the Operational Guidelines of the UNESCO World
pride and responsibility in the State Government with Heritage Convention.

Bibliographic references Heritage List, UNESCO World Heritage * {   ˆ  ^ Q

* #^Š^[\˜˜^ Œ  Š  „"  ^ Centre, Paris, viewed November * €' ^{[\š—^A Guide to the Old
Space and Deity, Homage to Jaipur, Marg, 2013, <http://whc.unesco.org/uploads/ Observatories, The Academic Press,
vol. 30, no. 4, Marg Publications, Bombay. nominations/1338.pdf>. Gurgaon.
* =#•––\^Jantar Mantar Management * Œ & = &  #  '•–[[^ * Š=^{[\\|^XŒ  Š  „
Plan 2009-2013, Department of Art and Jaipur Master Plan 2025, Government of Architecture, Astronomy, and Solar Kingship
Culture, Rajasthan. Rajasthan, Rajasthan. in Princely India’, The Cornell Journal of
* Jain, M 2007, Nomination of the Jantar * €' ^{[\[š^" Astronomical Architecture 5, Ithaca.
Mantar, Jaipur for inclusion on World Observatories of Jai Singh, Superintendent
 Evolving Models of Site Management in the Indian Subcontinent 149

City Development Planning

in Mandu
Evolving city conservation and
management strategy
3$58/*081-$/$1'3$/$6+65,9$67$9$
Parul G Munjal is an Assistant Professor
at Sushant School of Art and Architecture,
Gurgaon, pursuing doctoral research in the ABSTRACT
area of participatory approach for heritage
management. A conservation architect, she has The process of preparation of City Development Plans (CDP) initiated
worked on research based projects, preparation under the Jawaharlal Nehru National Mission for Urban Renewal
of world heritage dossiers and development of (JNNURM) was picked up by the Madhya Pradesh Government as it
training programmes and publications in the commissioned the Plan preparation for all urban areas in the State.
         Mandav, better known as Mandu, is one such town of Madhya Pradesh
as a part of her professional experience. that is also on the UNESCO World Heritage Tentative List since 1998
as ‘Group of Monuments at Mandu’. The process of plan preparation
Palash Srivastava is an infrastructure has given impetus to documentation, stakeholder consultations, analysis
professional with more than 17 years of proposals for the small town. It also provided an opportunity to
experience in structuring urban infrastructure understand the context in a holistic manner, bringing up a number of
projects including public private partnerships aspects related to World Heritage conservation and development through
across roads, ports, railways, airports, the course requiring in depth contemplation and prioritisation.
special economic zones, tourism, information
technology and healthcare sectors. He has INTRODUCTION
contributed to the formulation of the 12th Plan
for the Planning Commission as a Member of The case of Mandu is unique in offering an example of a small town
Working Group for Financing Urbanisation. undertaking the process of CDP preparation2. It boasts of multiple layers
150 Evolving Models of Site Management in the Indian Subcontinent

of historical associations and group of monuments that local level, providing possible solutions for effective
are on the World Heritage Tentative List of India since heritage conservation and management. This can also
1998. The earlier village of Mandav has combined have an impact on the subsequent nomination of the
       @ŠŠŽ      ‘Group of Monuments’ on the Tentative List or the
town, now governed by a municipal body or Nagar more holistic entity of Mandu as a World Heritage site.
Parishad (NP) versus the earlier Village Panchayat.
The population of the town as per the Census of India IDENTIFYING THE HERITAGE
is 10,657 (Government of India 2011) with the current COMPONENTS OF MANDU
municipal boundary of Mandav, spread over about
25 square kilometres3. The administrative boundaries Mandu is very well known as a tourist destination,
)              especially for the natural settings, protected monuments
fort of Mandugarh, built atop the plateau. This provides and religious institutions. Located on top of an offshoot
the opportunity to deal with the administrative area that of the Vindhyan Range separated from the main Malwa
   '   '     '   Plateau by a deep gorge know as Kakra Khoh. The
comprehensive, rather than fragmented manner. town is enveloped in the Mandu Reserved Forest and
  ˆ)    '  ")  (
A common ground between appropriate conservation to the east of the town. It overlooks a lush green valley,
and management strategies for heritage and various drained by a small river. Along the South, the land is
developmental interventions is possible in the case of surrounded by rolling hillocks and offers a distant view
Mandu. This is on account of many factors; for instance of River Narmada. The natural heritage of the town is
the town hasn’t seen large scale interventions till now,   †        '  
has a predominantly indigenous tribal population with as a distinct entity, the system of water bodies within
its own living heritage, an undisturbed picturesque   '  (      
natural setting and still has a number of historic place. The present Mandu town was historically a
structures intact, quite a few of which are protected fort, with a citadel known as Songarh situated at the
at the State and Central level. Established as a tourist most secure and inaccessible part of the plateau along
destination, the Dhar District Administration also has the western edge. Remains of various archaeological
a strong interest in the place. The consultative process and architectural layers of physical fabric are present
involved during CDP preparation has opened a dialogue in Mandu, dating from the 10th to 17th century AD.
on heritage management with the local population, so The physical components include defence elements
that the stake shifts from external organisations to the           

Centrally protected monuments in Mandu

Typology Name of Monuments under ASI
Gates Alamgir Gate, Bhagwania Gate, Bhangi Gate, Delhi Gate, Gadi Darwaza, Lohani Gate, Jahangirpur
Gate, Hathi Pole Gate, Rampol Gate, Songadh Gate, Tarapur Gate, Tripolia Gate
Baodis, tanks and other Ancient Hindu Baodi, Andheri Baodi, Ujali Baodi, Champa Baodi, Hammam, Kapoor Talao and the
water structures ruins on its bank, Hammam, Somavati Kund
Tombs and mosques Hoshang Shah’s Tomb, Chor Kot Mosque, Darya Khan’s Tomb, Dilawar Khan’s Mosque, Jama Masjid,
Mahmud Khilji’s Tomb, Malik Mughith’s Mosque, Mosque near Sopi Tank, Mosque north-west of Darya
Khan’s Tomb, Mosque near Tarapur Gate, Nameless Tomb west of Shila Tank, Mosque opposite
Rampol Gate, Tomb & Mosque between Chor Kot mosque & Chhappan Mahal, Tomb north of Darya
Khan’s Tomb, Tomb north of Alamgir Gate
Palaces # Š^‡ }ˆ ^  €}Š^= ”Š^= ”  ”
Mahal, Ek Khamba Mahal, Gada Shah’s Palace, Hathi Mahal, Hindola Mahal, Jahaz Mahal, Jali Mahal,
Nahar Jharokha, Royal Palace in the west of Champa Baodi, Roopmati’s Pavalion, Taveli Mahal, Water
Palace
Caves and temples Lohani Caves, Neelkantha (Nilkantheswar), Sat Kothari Caves
Others Nahar Jharokha compound, Chor Kot, Dharmashala in the compound of Hoshang’s Tomb, Gada
Shah’s Shop, Lal Bagh, Lal Bungalow, Caravan Sarai, Ruins on the west of Rewa Kund, Tower of
Victory
 Evolving Models of Site Management in the Indian Subcontinent 151

State protected monuments in Mandu

Name of Monument Period Monument
under MP Department of Category
Archaeology
Chappan Mahal 16th century B
Kothri Sarai 16th century B
th
Madankui Sarai 16 century B
Phuta Mandir 16th century B
Roja Ka Maqbara 16th century B
th
Roshan Bagh Mahal 16 century B
Adar Gumbad Mahal, Sagar 15th-16th century B
th
Jamnya Mahal 16 century C [  *+   +  
Bodhiya Mahal 16th century B extending to River Narmada from the Roopmati Pavilion
Sumrawala Mahal 16th century B
Nagariawala Mahal & 16th-17th century B
Masjid, Sagar
Dkania Mahal, Jamania 16th century C

temples, mosques, tombs, palaces and water bodies

such as ponds, tanks and baodis (stepwells). Along
with historical associations from the sixth century
AD4, Mandu is indispensably linked to the legendary
love of Baz Bahadur and his queen Rupamati. How
              
evident from the fact that of the three separate groups
of historic monuments under Archaeological Survey of
India (ASI) at Mandu, the Rupamati Pavilion draws the The water bodies, heritage structures and natural setting
around, depict an inherent interdependence and overlay
maximum number of visitors.5

The town has a dominant tribal population of 84.3% the road connecting Dhar with Mandu towards the
(Government of India 2011) residing here through North and others that provide picturesque views of
generations. Yet, this aspect of the town had been the valley and gorges around connect the hill fort with
neglected through the years, while tourism was the surroundings visually. The presence of historic
increasing. During the documentation and analysis of structures and a water tank in Nalchha, a village that
the heritage of the town for the various stages of CDP, lies at the foothill, along the road from Dhar, Budhi
the focus was brought on to the local tribal population or old Mandav, an archaeological site that lies a few
and their distinct living heritage including music, kilometres away from the town and others at the
dance, arts, crafts and traditional knowledge systems immediate foot of the plateau that became evident in
    (      =  satellite imagery analysed as part of the CDP, point
ancestors of the indigenous population may have had towards other interrelationships that may have existed
with construction activity of the massive enterprise at between the hill fort and its surroundings.
its prime is another aspect that needs exploration and
can further strengthen the associational value. The entry of ‘Group of Monuments at Mandu’ to the
UNESCO World Heritage Tentative List includes
Beyond the actual limits of the town and the ‘61 monuments including fort wall protected and
     )'     declared as monuments of national importance’ (ASI
it with its surroundings. View points from the hill 1998). However, the remaining State Protected and
    '        '  unprotected heritage structures, historical associations,
help guarding the fort. These view points, such as natural heritage, link with surroundings, culture of
the view of River Narmada towards the South and the indigenous population and the relationship they
152 Evolving Models of Site Management in the Indian Subcontinent

share with the entire ecosystem are multiple layers that

             
  ZQ  J)   JY   
the Tentative List goes against the holistic view as laid
out through the Historic Urban Landscape (HUL) and
cultural landscape approach over the recent years. A
more inclusive attitude is called for, while preparing the
nomination dossier, as and when the same is taken up
for further action.

SIGNIFICANCE OF CONSULTATIVE
PROCESS

The framework for World Heritage management ;     |    
(UNESCO 1972; UNESCO 2012) brings into focus requirements of people living around, in a decentralised
manner. Traditional solutions that need to be valued and
the role of local communities in protection of natural continued
               
stakeholders engagement in conservation, management World Heritage Sites in UK where a ‘lack of grass roots
and planning as a requisite for inscription as a World consultation’ and ‘limited assessment of local economic
Heritage Site. A number of researchers across the characteristics and tourism infrastructure capacity’ are
world have studied the issues and potentials with challenges that are evident from the six cases studied.
respect to World Heritage and involvement of local According to Landorf, ‘the implication of this is the
community. Landorf (2009, p. 66) discusses the case of isolation of World Heritage sites from their local

[                   +
 Evolving Models of Site Management in the Indian Subcontinent 153

Stages and activities involved during city level consultation during Mandav CDP Preparation
Consultation Held Activities involved Integration into
Kick Off Workshop, x Introducing attendees to scope, process and coverage of CDP Inception Report
November, 2011 x     ‚  
x Inviting citizens to give their views on the key issues

Stakeholder Workshop, x Presentation on sectoral analysis, Strengths Weaknesses Opportunities  'ˆ  ^ & 
February 2012 and Threats (SWOT) Analysis and understanding of town Vision and Goals
x Formulation of vision for the town
x Discussions on existing and proposed landuse
Stakeholder Workshop, x Presentation of sector wise proposals and projects Draft CDP
September 2012 x Presentation of City Investment Plan and Financial Operating Plan
x Feedback and suggestion given by all attendees

economy and an associated impact on the equitable The stakeholders expressed that excavations for new
                construction undertaken in the past have resulted in
tourism development’. Marcotte and Bourdeau (2012,            '    
p. 89) emphasise on the potential of using the World structures below the ground, due to which any further
Heritage label for ‘sustainable tourism activities that activity is put on hold. A completely extreme situation
     '           has also been anticipated by some local stakeholders,
and the promotion of local culture and traditions’. wherein the entire population would be moved out of
  (        = the town because of the attempt at inscribing it as a
between World Heritage designation and development  ?          >   
of economy and tourism in a manner that includes perception that heritage protection and management are
   =     )   anti development.
maintaining the values of the World Heritage site.
Over the consultative process, the local stakeholders
The multi-stage CDP preparation process, with were made aware of the holistic approach that
each stage of development linked with stakeholder combines the interests of the local community with the
consultations as outlined in the prescribed Toolkits heritage resources. Heritage appeared at the heart of
(UADD 2012) sets the stage for participatory planning discussions across all critical sectors such as:
and its implementation. During the Mandav CDP x Livelihood generation: a major area of concern since
preparation, besides presentations and discussions 59.2 % of the population is unemployed at present
at District and State levels, three formal consultative (Government of India 2011). The potential of natural
workshops were organised at the city level over a and cultural heritage based livelihood strengthened
period of one year. In these workshops, representation the relationship of the local community with the
from all stakeholder groups was sought that included heritage resources. It was emphasised that the use
"ƒ   )   | )   of local agricultural produce, crafts, raw materials
journalists, traders, councillors, senior citizens, and manufactured goods in any form or format can
)Y  )     produce a multiplier effect in the local economy
archaeology department, taxi drivers and journalists. through direct, indirect and induced economic
Suggestions and feedback from these workshops were activities.
integrated in the various stages of the CDP preparation. x Water supply: solutions devised by integrating
At the outset of the process, there was a clear revival of traditional water systems.
consciousness amongst all stakeholders about the x Environment: with focus on planting indigenous
heritage and tourism focus in any development species and revival of water bodies that would in
initiatives that had been carried out in the past, leaving          
the other issues of local communities unattended. has an intrinsic relationship with these for their
It became evident that the puritan protectionist and sustenance.
preservationist approach, especially with respect to x Roads:         '  †  
built heritage, has dominated the existing heritage   )     '    
management framework, alienating the local to access the heritage resources and promote rural
communities from the resources. and ecotourism.
154 Evolving Models of Site Management in the Indian Subcontinent

The Adansoni digitata (baobab) is unique to this area Locally called Khurasani Imli it is supposed to have been introduced into
Mandu from Africa, during the reign of Mahmud Khalji

x Tourism: based on natural and cultural heritage      ) '       
    )     *  of the development process that goes hand in hand with
to the local population with minimal economic heritage conservation and management.
leakage. Another aspect that came forth during
the consultative process was, that the visitor As a result, by the later stages, the local stakeholders
carrying capacity of the town is dependent on its themselves came up with heritage cum development
tourist infrastructure and resources and the local oriented suggestions and solutions. This change of
population has a strong potential for providing these attitude from fear and disinterest towards heritage, to
  ) '   )      acceptance and celebration, has opened up possibilities
capacity building. for engagement of people through the implementation
x Heritage: with arts, crafts and knowledge systems process as participants in detailed research,
of the tribal population highlighted as heritage documentation and interpretation of heritage resources
resources, bringing a sense of pride in them towards that is being proposed as a part of the CDP.
their culture along with generating livelihood
opportunities based on these. Further, awareness generation and capacity building
of the local population and institutionalisation of the
Hence, the local community was made aware of information sharing process can enable the holistic and
their wealth of heritage, their role in the heritage effective conservation and management of heritage
) )       '  resources of the town. This in turn may strengthen
derive in the process. This helped them identify with the position of the town with respect to the process of
the heritage as a resource and not a liability that is World Heritage nomination.
hindering the growth of the town. The stakeholders
 Evolving Models of Site Management in the Indian Subcontinent 155

The local population of tribal settlements such as Sagar is predominantly an agriculture based society

CONCLUSION While on one hand, the frameworks for World Heritage

management provide an inclusive orientation for
The stages of CDP preparation have emphasised that heritage management, on the other hand, the CDP
J          )     preparation process at Mandu has enabled a platform
a unique overlay of natural, built and living heritage. for exchange of ideas regarding development of the
There is a strong need for a holistic understanding of town with heritage as a focal area across all sectors.
its heritage resources that go beyond the ‘Group of     )       
Monuments at Mandu’ as a part of the UNESCO World held at a local level in Mandu sc as the inclusion of
Heritage Tentative List, to the town boundary and tribal population and all other stakeholders of the
further to the surrounding areas. town in developmental decisions and opening their
involvement in heritage resource mapping. Additonal
The suggested management of the resources of the analysis and management by bringing into effect, a
town in context of a much larger planning area keeps more receptive attitude in the stakeholders towards the
in mind the interrelationship between the town and heritage resources. The suggestion that the associations
its surroundings in terms of visual, functional and that the indigenous population bears with the natural
physical aspects. The delineation of this planning and built heritage resources and the contributions that
area can serve the function of a buffer zone for the their cultural richness make towards the overall cultural
maintenance of the heritage values of the Group of value need to be explored, has also evolved due to the
Monuments on the Tentative List or the more holistic consultative process.
entity of Mandugarh, Mandu or Mandav, assisting in
the process of nomination on the World Heritage List There is potential for the town that includes a group of
and management of the same. monuments on the UNESCO World Heritage List, to
156 Evolving Models of Site Management in the Indian Subcontinent

stand out in demonstrating integration of community

and heritage based development in the planning
process, in a holistic and integrated manner, due to the
consultations involved while preparing a CDP for the
town. The consultative process has helped in giving the
local community a voice and a positive attitude toward
heritage resources. This can also contribute positively
towards developing management frameworks that are
required for inscription as a World Heritage site and
their effective implementation on site.

2
Acknowledgement Journal of Cultural Heritage Management The Plan being prepared by IDFC Ltd. for
The images were taken during the CDP and Sustainable Development, vol. 2, no. 1, Urban Administration and Development
preparation process and the map generated on pp. 80-91. = &   !#==$     
the basis of collating secondary and primary x UNESCO 1972, Convention Concerning the currently, having undergone three stages of
information on the heritage structures, courtesy Protection of the World Cultural And Natural development since October 2011.
3
IDFC Ltd. Heritage, UNESCO WHC, Paris, viewed Calculated based on satellite imagery, as
November, 2013, <http://whc.unesco.org/ opposed to the information from Mandav
Bibliographic references archive/convention-en.pdf>. local government or Nagar Parishad that
x ASI 1998, ‘Group of Monuments at Mandu’, x UNESCO 2012, Looking Forward, UNESCO states it to be 42.2 square kilometres.
4
Tentative List, UNESCO World Heritage World Heritage Centre, Paris, viewed The town was noted as Mandapa Durg, a
Centre, viewed November 2013, <http:// November, 2013, <http://whc.unesco.org/ hill fort in an inscription from 555 AD, on the
whc.unesco.org/en/tentativelists/1095/>. en/news/1018/>. pedestal of a Jaina image, found in Talanpur
x ASI 2004, Mandu, ASI, New Delhi. x Urban Administration and Development near Kukshi in Dhar District (ASI 2004).
x Government of India 2011, Census of Department (UADD) 2012, Toolkit for CDP 5
As per statistics from ASI, the visitations to
India, The Registrar General & Census Preparation, viewed November 2013, Rupamati Pavilion were around 300,000 in
Commissioner, India, New Delhi. <http://p2.mpcdp.com/PDF/CDP-Toolkit- the year 2011-12, which is more than those
x Landorf, C 2009, ‘Managing for sustainable English.pdf>. to the other two groups of monuments,
tourism: a review of six cultural World x Yazdani, G 2000, Mandu: The City of Joy, namely the Royal Palaces and Hoshang
Heritage Sites’, Journal of Sustainable Aryan Books International, New Delhi. Shah’s Tomb. This information is based on
Tourism, vol. 17, no. 1, pp. 53-70. ticket sales of the centrally protected group
x Marcotte, P and Bourdeau, L 2012, ‘Is the Notes of monuments.
1
World Heritage label used as a promotional The views of the authors are their own and
argument for sustainable development?’, do not represent those of the organisation.
 Evolving Models of Site Management in the Indian Subcontinent 157

The Role of Communities in

Shaping the Management of
World Heritage Sites
5$-(1'5$6+(1'(

ABSTRACT

The 40thanniversary of the World Heritage Convention of UNESCO in

2012 has seen renewed efforts to mainstream local communitiesand
indigenous people in conservation of World Natural Heritage sites. A
Rajendra Shende is the founder and Chairman small but inspiring experiment has been undertaken by local communities
of Technology, Education, Research and with the help of Technology, Education, Research and Rehabilitation
Rehabilitation for the Environment, Policy for the Environment (TERRE) Policy Centre and other NGOs in the
Centre, Pune. The Policy Centre has northern most and the smallest of 39 sites of the Western Ghats- which
undertaken projects in the area of nature are inscribed by UNESCO as World Natural Heritage in 2012; the Kaas
conservation, climate change and ecosystem =      "     ^+K#
evaluation including sustainable development that is, Communities along with four other aspects stipulated by World
of the local communities around World Natural Heritage Committee, namely, Credibility, Conservation, Capacity-
Heritage in Western Ghats, India. As a Former building and Communication can potentially create a working model of
Director at the United Nations Environment preserving heritage for present and future generations.
Programme (UNEP) and the Coordinating Lead
Author of Intergovernmental Panel on Climate INTRODUCTION
Change (IPCC), Rajendra shared the Nobel
Peace Prize in 2007 with IPCC’s other authors The inscription of 39 sites including Kaas Plateau in the Western Ghats
as well as Al Gore. of India has been a prolonged process followed by one year of the
158 Evolving Models of Site Management in the Indian Subcontinent

post-inscription activities in and around the Kaas GLOBAL INITIATIVE THAT LINKS WNH
Plateau. Preliminary community dialogues during the TO SUSTAINABLE DEVELOPMENT
proposal stage created useful debates and helped in
developing clarity about the needs of the community. The World Heritage Convention acknowledged,
     =    )    from the outset in 1972, that securing the support
major inclusive dialogue that engaged local villagers, of communities is absolutely crucial to achieve its
UNESCO, local media, experts, government and conservation objectives. Article 5 of the Convention
Non Governmental Organisations (NGOs). An explicitly stipulates this as a management strategy in
action oriented consensus among the local village order to ensure that effective and active measures are
communities was the major outcome based on taken for the protection, conservation and preservation
which, within months of inscription in July 2012, of cultural and natural heritage situated on its territory.
local villagers took up decisive action through Forest It states that each State Party shall endeavour to
Committees to implement the recommendations adopt an appropriate policy, which aims to ‘give the
agreed during community dialogues. cultural and natural heritage a function in the life of the
community’ (UNESCO 1972).
INSCRIPTION OF WESTERN GHATS ON
THE LIST OF WORLD HERITAGE The decision by the World Heritage Committee in New
Zealand in 2007 resulted into adding ‘Communities’
When the president of the World Heritage Committee   Z $Y       >   
in its 36th      ƒ      ' Convention. It reiterated the importance of local values
announced that the serial nomination of 39 sites of embedded in its traditional culture and practices, as
Western Ghats of India were inscribed as World        †        
Natural Heritage, there was a burst of celebration in arising from World Heritage inscriptions. The role of
the palatial hall of Tavricheskiy palace. The dedicated local communities in ensuring that ‘World Heritage
team of experts and representatives from the Indian Contributes to Sustainable Development’ was the
Government and various other institutions were central theme for the celebration of the 40th anniversary
overjoyed by this decision though they quickly realised of the World Heritage Convention in 2012. This
the responsibility that they now had to shoulder. After theme emphasised the fact that local communities and
the trials and tribulations of nearly seven years, this indigenous peoples are, and have been for centuries,
       '     the custodians of many World Heritage Sites and have
internationally and it was now incumbent on India to    =   )  )   '
protect it for future generations. The focus on communities, demonstrates how the
Convention has played an important role in using
The Western Ghats are a mountain range along World Natural Heritage as a means of fostering local
the Western coast of India, spanning across 1,600 sustainable development and conserving heritage.
kilometres in the North-south direction. At least
325 globally threatened species may be found in the Civil society organisations have been actively
Western Ghats. It was inscribed as a UNESCO World promoting this cause, at the same time that the
Heritage Site by the World Heritage Committee in its Convention could still do more to identify and
36th session in Saint Petersburg after nearly seven years recognise the cultural and ecosystem values, as well as
of planning. It was hoped that this recognition would the rights of local communities and indigenous peoples
transform into effective management of the sites to under international instruments, including the UN
safeguard it for future generations. Declaration on the Rights of Indigenous Peoples and
UN Permanent Forum on Indigenous Issues (UNPFII).
Early on in the process, it was realised that the The World Heritage Committee has submitted a
‘inscription’ of the site is not an end in itself. It is number of follow-up recommendations. In particular,
simply an instrument to begin preserving heritage the 35th session of the World Heritage Committee in
against various challenges. In reality, it is a beginning Paris in June 2011, encouraged State Parties to:
of deployment of tools to sustain heritage so that future Involve indigenous peoples and local communities
generations would be as proud of it as the preceding in decision making, monitoring and evaluation of
ones. Historically, UNESCO has inspired and enabled the state of conservation of the properties and their
countries, slowly but steadily, in making communities Outstanding Universal Value and link the direct
at the centre of conservation. )) '        )
 Evolving Models of Site Management in the Indian Subcontinent 159

Respect the rights of indigenous peoples when environmental impact assessment. The poachers and
nominating, managing and reporting on World        *     '  
Heritage sites in indigenous peoples’ territories.  (          
    J+)   )) )
LOCAL ATTEMPTS TO ENGAGE  (   !  '     
COMMUNITIES IN KAAS PLATEAU surrounding this plateau are largely illiterate. They
were aware of their natural heritage, but did not realise
Noting these global developments and their positive the impact of these threats to their environmental
messages, TERRE Policy Centre, Pune, India in wealth that contributes directly and indirectly to their
coordination with other local NGOs launched a own livelihood. The younger generations, though
mission to catalyse the community dialogue in a novel literate, had left the area for the better prospects in
approach for Kaas Plateau, the smallest (area of 1,800 metropolitan cities like Pune and Mumbai.
hectares nominated site in the northern most cluster of
the Western Ghats (total area of 16,000,000 hectares). OPPORTUNITIES
TERRE noted that in the past, in some instances, a
risk existed that lack of dialogues could hinder the Conservation and true development must be
rights of indigenous peoples under the Convention complimentary to each other. Process of satisfying
and inappropriate consultations by overenthusiastic present needs should not compromise the ability of
NGOs could result into obstruction of the inscription future generations to utilise natural resources for their
and delay the inscription. The community dialogue own needs. Detailed situation analysis showed that,
designed by TERRE was based on conservation there existed an opportunity within Kaas, to use the
through development of the local communities. It not local natural resources, where young individuals
only received huge response before the inscription could be entrepreneurs in eco-tour conductors, drivers,
but produced some early outcomes that are inspiring waste recovery and recycling, food package suppliers
and could provide some positive messages from this and guides. In consultation with the local NGOs and
northern site. also with local communities it was decided that in the
intervening period between community dialogue and the
SITUATION ANALYSIS declaration of the area as World Heritage Property could
be best utilised to kick-start the actions on capacity
The situation analysis was prepared before undertaking building and awareness of the local community.
the community dialogue programme. The State
of Maharashtra, India hosts a niche-treasure of For instance, a one day workshop was organised in
biodiversity in its Western Ghats called ‘Kaas - Satara , a District Headquarters located 25 kilometres
Plateau of Flowers’. Kaas area is characterised by ' ) ˆ    >    ) 
superlative natural phenomena or areas of exceptional         =   ˆ ƒ 
natural beauty and aesthetic importance (criterion vii) It was complimentary to the efforts by the Government
along with Chandoli National Park, Koyna Wildlife of India, Government of Maharashtra, International
Sanctuary and Radhanagari Wildlife Sanctuary in the Union for Conservation of Nature (IUCN) and other
Sahyadri Range. Geographically located at 17º42’ to "Q% =         =  
17º45’ N and 73º47’ to 73º56’E in the Satara district the arrangements between the Western Ghats Natural
of Maharashtra, Kaas is a lateritic plateau at a height Heritage Committee and the Western Ghats Ecology
of 1,200 metres above mean sea level. It is spread over Expert Panel.
about 1,800 hectares of land. More than 450 species
   ( )       ) The overall objective was to launch the process of the
season, most of them are endemic herbs. This area conservation of the natural heritage and leverage it for
has been attracting the attention of tourists, botanists sustainable development. It was not only for keeping
and environmentalists for more than a decade. It is a         ( 
sensitive hotspot of biodiversity due to its varieties of     '  (  '     
 †       (      exhibition of nature, but also to ensure its utility for the
have already been undertaken to list its endemism. continuity of the agricultural productivity through the
Kaas Plateau was under threat not only from enhanced pollination, nutrient cycle and biodiversity.
burgeoning tourism but also of the indiscriminate The possibility of a Three Tier Management System
development processes that did not undertake adequate including national, state and local level biodiversity
160 Evolving Models of Site Management in the Indian Subcontinent

committees was expected to be established based on the ˆ      %   
model of Valley of Flowers in the state of Uttaranchal. key ground level challenges. They actively and directly
interacted with experts from UNESCO, Chief of Forest
THE LAYERED AND INCLUSIVE Department and the technical experts.
DIALOGUE PROCESS
The key recommendations from the meetings were:
Several group dialogues with local villagers in their Firstly, biodiversity conservation on public land is a
villages and in the nearest city, Satara, where the multifaceted and complex matter and management
  ) Y            = ˆ        )  > 
group of medical doctors, many belonging to local forest management approach cannot be applied to the
NGO called Ranwata, who were in close contact with biodiversity conservation area. There is, thus, a need
the community through their medical camps around for an integrated focused discussion and dialogues with
Kaas plateau gathered a number of suggestions and technical inputs to evolve a strategic action plan and its
recommendations from the local community. All implementation.
inclusive dialogue events were then devised to include
relevant stakeholders. They were brought together on Secondly, there is urgent need to:
one platform to: x „      
x Deliberate on the status and threats to Kaas. x Educate communities.
x Discuss and plan for the early actions for the x Build advocacy as opposed to confrontation.
preservation of the Kaas to mitigate the threats due x Prioritise on what is vitally important and understand
to indiscriminate development processes and climate that development will happen at a rapid pace.
change. x         
x Prioritise the early activities of community
development, capacity building and awareness  '         ) 
amongst the local villagers, tourists, government assistance, education and employment that are
authorities and NGOs. supportive to sustainable development of the plateau
x Identify community based social business and surrounding villages, should be made a part of the
opportunities such as eco-tourism for the local conservation efforts.
youths.
x Plan for the existing and future biodiversity research Fourth, in future, there should be continuation of
work. involvement with local people from the villages
x Make recommendation of Three Tier Management surrounding Kaas, to build up conservation support at
System including national, state and local level grassroots level. This way a very robust conservation
biodiversity committee in line with the similar and management strategy could be built.
system successfully established at Valley Of Flowers
in Uttaranchal state of India. The local forest committee started holding meetings
x Deliberate on resource mobilisation. immediately after the community consultations
started without waiting for the UNESCO inscription.
Participants included local communities, youth, It decided to make a governance plan to control the
researchers, academicians, entrepreneurs, eco-tour *            
operators, transport operators, entrepreneurs of waste vehicles to protect the Kaas Plateau. They agreed to
recovery and recycling, food package suppliers, guides, develop a plan for facilitating the visits of the limited
trainers and promoters of new ways of agriculture, tourists based on the carrying capacity of the site and
government representatives, NGOs and the private charge the entrance and parking fee.
sector. Hospital Owners Association-Satara, Ranwata
Nature and Environment Society-Satara and TERRE POST INSCRIPTION ACTIVITIES
Policy Centre-Pune assumed the role of main
organisers with support from Biodiversity Commission After the Plateau got its recognition by UNESCO as
of Government of Maharashtra, IUCN, Ministry of World Heritage, the conservation movement gathered
Environment and Forest (MoEF) and UNESCO. speed, mainly because of preparations made during
pre-inscription period and community dialogues.
Importantly, the sarpanchs (elected administrative TERRE Policy Centre along with Ranwata and the
representative of a village) from the villages around local community took the challenge in association
 Evolving Models of Site Management in the Indian Subcontinent 161

      )=  )   

Building Blocks to Success: Milestones in the
towards leveraging the heritage site for sustainable
nomination, inscription and management of
development.
the Western Ghats
* •––—„ ‚    &       
Within a space of less than one year, small and
Western Ghats as World Natural Heritage.
symbolic progress made by the local community
* •––—%•–[–„     ‚'
around Kaas goes on to support the doctrine that
World Heritage Committee, IUCN.
heritage sites can be leveraged for the sustainable
* •–[–%•–[[„" & &@   @ ‚ 
development of local communities.
of recommendations; primarily related to the major was
related to inadequate community dialogue. Ranwata
The series of activities followed under the guidance of
and TERRE initiated direct dialogues with locals.
# #         
* #& •–[•„" @ ”& '=  
The local forest committees played the key role
organised by TERRE and Ranwata in Satara, not far
in decision making and implementation. Without
from Kaas Plateau. It included local village heads,
their understanding and enthusiasm the innovative
   ^    &    ^ “& 
schemes they envisaged would not have resulted
from UNESCO, Bombay Natural History Society and
      ))   )
number of NGOs and media.
importantly into giving the hopes that the sustainable
* Œ'•–[•„  ‚   €& 
development of local communities and nature
World Natural Heritage along with 39 sites in the
conservation are certainly possible by leveraging
Western Ghats.
World Heritage.
* Œ'•–[• Œ•–[‹„&      &
made by the local forest committees and village
SPECIFIC INITIATIVES FOR
panchayats.
MANAGEMENT OF KAAS
* [•Š'•–[‹„#'     & ^  
meeting was organised in Kaasai Temple with villagers
x Website was launched by the State Government
    ^      
to inform the tourists of the plans for the initial
and other, experts. TERRE and Ranwata will review
management of the site.
the progress and chart out next year’s plan.
x TERRE and Ranwata visited four villages around
Kaas and held discussions with sarpanch of Kaas
immediately after the inscription. Forest guards and Institute of India (WII), who was leading proponent
local communities took part in discussion for early of the World Heritage sites in Western Ghats,
actions. The discussion focused on the next steps   %     )  "Q%
on effective implementation of the management of and local communities. It helped to clarify the
World Heritage. Though it was the time of heavy issues related to the barriers and opportunities of
monsoon rains and people in the plateau were busy managing the World Heritage.
in sowing operations, there was huge enthusiasm x    \]@\     (  
to learn more about what      tourist season after the inscription, Minister for
the local community from this new transformation Forest, Government of Maharashtra, inaugurated
of the Plateau to the global platform of World the plan to monitor and control the tourists.
Heritage. x TERRE and Ranwata launched a web site (www.
x A Meeting with elected Member of Legislative westernghatworldheritage.org) to promote the
Assembly (MLA) along with heads of the local understanding of the World Heritage management
villages held at the Kaas Plateau to discuss with among other NGOs, interested public and nature
TERRE and Ranwata the plans for post-inscription lovers.
activity. It was proved to be the key event to take x The doctors held medical camps in the surrounding
the issue of management of the Plateau at the policy villages from Satara belonging to Ranwata, during
level. It was the opportunity to emphasise the role which importance of the conservation of the World
of local governance and effective implementation Heritage was explained.
various Indian Acts related to Forest and x Series of meetings with local people of villages
Biodiversity. Atali, Ekiv, Kaas and Kusumbi, were held to
x An interactive session was organised at Pune, provide suggestions on the developmental issues.
between Dr.Vinod Mathur, Dean, Wild Life x Meetings were also held with forest guards and
162 Evolving Models of Site Management in the Indian Subcontinent

   ˆ  „)    x Maintenance of the plateau

awareness and to discuss on forest management. x For printing books and brochures
x More than 30 awareness raising meetings and x For maintaining parking space
presentations were done in schools and colleges in
the villages and town in the buffer zones The rest of the funds were distributed to four villages
x Japanese wild life experts and botany professors around Kaas, in proportion to their area under World
who visited Kaas and presented Japanese Heritage to undertake community development
experience. activities such as the following:
x $   % ˆ  &    ) ‚ Cooking gas to poor families to prevent cutting
suggestions on eco-friendly tourism. of trees: All the families in the Kaas village
x Ranwata participated in series of meetings with used to cut the trees and stack the logs in their
Joint Forest Management committee at Satara and house for cooking. Now all families have started
Kolhapur to make recommendations.    †  )  /ƒQ ' 
for cooking purposes so that cutting of trees and
HIGHLIGHTS OF INNOVATIVE valuable shrubs is avoided. It also helped to save
IMPLEMENTATION time taken by women and children to fetch the
biomass from forest. This has freed their time so
The village governing bodies that had formed the that they can now focus on education and more
 ))     )     ( productive activities like farming and craft making.
commensurate with the carrying capacity of the 25% of the cost of the LPG cylinders is born by the
plateau and control their visits so as not to disturb families. (136 families had the provision of LPG
the fragile nature. They also agreed to provide cooking gas connections as of June 2013)
guidance to tourists for responsible behaviour to ‚ Helping the neighbours in natural calamities:
protect the biodiversity. The villages decided to help the other villages
in the Satara district that were suffering from
Charging fees to protect the nature the shortage of water and famine. The villagers
Local village level forest committee decided to from Kaas, through voluntary efforts have cut the
charge the tourists for: grass and kept ready to provide fodder (grass)
x The entry and parking fees for the tourists from the Kaas Plateau to the cattle in the region
x Fees to take photos-commercial, personal and even facing shortage of water. The state government is
on mobile running a camp for the cattle that are not getting
x Penalty fee for creating nuisance, throwing plastics,           )  
and rubbish of the district authority would supply the fodder of
x Sale of booklet and brochure about Kaas Plateau nearly two truckloads to these camps. This action
and guide demonstrated the brotherhood gesture. (eight trucks
of fodder were donated to famine affected cattle.)
$       (   )  ‚ Solar street lights for the security of the protected
were as follows: area: Kaas is connected with electricity lights.
Utilisation of collected money The street lampposts have the provision of the
The collected fee was used for: electrical lights. But Kaas village cannot afford to
pay the bill of the electricity. Also due to shortage
Collection was approx USD 25,000. of electricity, Kaas roads are almost always
without lights. This also affects the security on the
4.1%
Entrance & main roads leading to the forests around the area.
16.6%
parking fee To tide over this situation solar lamps were
Photo fees installed on priority on the roads and in the temple
just outside the village. This has brought light to
Sale of books the temple, as well as enhanced security for the
and brochure World Heritage Property to a certain extent. 18
Nuisance solar street lamps were installed as of June 2013.
penalty fee
   )) '         
from the inscription of Kaas. They know that if
 Evolving Models of Site Management in the Indian Subcontinent 163

implementation of the plans decided by the

Achievements local forest committees.
* 136 families provided with LPG cooking gas x Extensive plans and project for the sustainable
connections as of June 2013. development of local communities and
* 8 trucks of fodder donated to famine affected cattle. conservation of the World Heritage is under
* 18 solar street lamps as of June 2013 preparation by TERRE and Ranwata including
medical help, scholarships for local students etc.
governed well, they could avail resources and means to x Enabling resource mobilisation and providing
conserve their own heritage.TERRE and Ranwata will opportunities for the locals to learn from other heritage
work with them to help them to achive their goal. sites is also being planned.

FUTURE PLANS CONCLUSION

x Above activities have been carried out in Kaas
village. Similar activities are planned in other Although protected areas including World Natural
villages of Atali, Ekiv and Kasani in the near Heritage sites cover only 13% of Earth’s land,
future. substantial gaps still remain in their coverage of
x A proposal is being developed for interpretation global biodiversity and traditional knowledge.
centre to provide information to tourists for Kaas Plateau provides a potentially effective pilot
responsible tourism. Additionally training project to bridge the gaps amidst the beleaguered
for local guides and systems for social WNH sites in the face of external threats including
entrepreneurship are being planned. indiscriminate human expansion and climate change.
x Sanitation facilities for locals and for tourists
are being planned.   ) > )      Z$Y 
x Parking place for bicycles, two wheelers and Communities along with four stipulated by World
cars will be improved and maintained. Heritage Committee, namely, Credibility, Conservation,
x TERRE and Ranwata would continue to work Capacity-building and Communication, can potentially
with the local communities and the forest create a working model of preserving the heritage for
     )   present and future generations.

Bibliographic references report-launched-at-unesco-world-heritage- October, 2013, http://whc.unesco.org/en/

* UNESCO 1972, Convention Concerning committee-23-june-2013&catid=36:our- news/1018/
The Protection Of The World Cultural And stories&Itemid=186#.Up5km9IW1uE> * Western Ghat World Heritage 2013,
Natural Heritage, UNESCO WHC, Paris, * TERRE Policy Centre 2013, Report Card Western Ghat World Heritage,
viewed October, 2013, <http://whc.unesco. on Progress in Kaas Plateau, Western Santara, Viewed October, 2013, http://
org/archive/convention-en.pdf> Ghats, TERRE Policy Centre, Pune, Viewed westernghatworldheritage.org/index.php/
* The GEF Small Grant Programme 2012, October,2013,<http://www.terrepolicycentre. disclaimer.
Compact 12-Year Report Launched At org/pdf/Report-Card-June-2013.pdf> * UNESCO 2013, UNESCO World Heritage
Unesco World Heritage Committee,The * UNESCO 2012, Report of the 40th Centre, Paris, Viewed October 2013, <http://
GEF Small Grants Programme, New York Anniversary Year activities: Celebrating 40 whc.unesco.org/en>.
, viewed October, 2013, < https://sgp. years of the World Heritage Convention
undp.org/index.php?option=com_conten and looking forward to tomorrow, UNESCO
t&view=article&id=327:compact-12-year- World Heritage Centre, Paris, Viewed
164 Evolving Models of Site Management in the Indian Subcontinent

Conventions and Capacity Building

 Conventions and Capacity Building 165

Learning from Unesco Conventions

Finding relevance for heritage conservation
02(&+,%$

NEW PARAMETERS FOR HERITAGE safeguarding of traditional knowledge and skills inherited by
CONSERVATION communities, while the second one encourages the State to
put into place an enabling environment for cultural or creative
UNESCO’s Recommendation for Historic Urban Landscape industries, wherein artists, cultural professionals, practitioners
(HUL) adopted in 2011 made it clear that managing heritage and citizens worldwide can create, produce, disseminate and
is increasingly about understanding how heritage conservation enjoy a broad range of cultural goods, services and activities.
contributes to people’s livelihoods and local development. Together with the 1972 World Heritage Convention, these
In this new set of guiding principles, heritage conservation three Conventions are said to be the ‘three pillars’ of UNESCO
is no more seen as an isolated discipline of just restoring and strategy towards the holistic promotion of world’s cultural
conserving physical buildings but is considered an integral part diversity. However, little seems to have been done in terms of
of urban regeneration. It is no longer about preserving the past collaboration amongst these three Conventions, or these three
but about managing change to respond to the need of cities to spheres of culture sectors. At the UNESCO Headquarters,
evolve. It is about understanding the site and its relation to local the three Secretariats of the Convention work within their
communities, their livelihoods and ways of living. It is about administrative setups. Likewise, at ground level, experts and
  ZY Y         '  professionals of these respective areas rarely work together.
conservation of a building. Management and planning is no However, as heritage site managers are increasingly asked to
more the sole prerogative of heritage experts, but begins from be accountable to people’s livelihoods and local development,
the participation of local communities. The Recommendation     *         
provides a timely invitation to heritage managers to cast eyes indispensable as is the integrated implementation of the three
on the other cultural conventions of UNESCO that would assist UNESCO Conventions.
them in the effective implementation of HUL.
CONVENTION FOR THE SAFEGUARDING
The need for linking conventions is stated explicitly in OF INTANGIBLE CULTURAL HERITAGE
the Final Report of the Audit of the Global Strategy and
the PACT initiative (World Heritage Committee p.80) as    
Recommendation Number 25 of the External Auditor. It Soon after its adoption at the 31st session of UNESCO General
asks to ‘strengthen cooperation between the World Heritage Conference (2003), this Convention has become one of
Convention mechanism and the mechanisms of the United the most popular legal instruments of UNESCO due to the
Nations for sustainable development, and other United appealing nature of its scope1 and the existence of ‘Lists’2
"            ) Y similar to that of World Heritage Convention to nominate
This article elaborates on two key conventions of UNESCO; intangible cultural heritage elements. However, the 2003
the 2003 Convention for the Safeguarding of Intangible Convention differs fundamentally from the World Heritage
Cultural Heritage and 2005 Convention for the Protection Convention in that it does not seek OUV to recognise the
and Promotion of the Diversity of Cultural Expressions that importance of an intangible cultural heritage element. Rather,
provide alternative perspectives of culture sector. it gives emphasis on communities’ ownership to decide
what intangible cultural heritage they want to safeguard
UNESCO CONVENTIONS FOR CULTURAL for their future. As such, if the articulation of Outstanding
DIVERSITY Universal Value (OUV) is one of the key tasks of the World
Heritage nomination, intangible cultural heritage nomination
30 years after the adoption of 1972 World Heritage format asks how the concerned communities (intangible
Convention, two new legal instruments joined the UNESCO cultural heritage bearers) have been involved in the process
family of cultural conventions; in 2003, the Convention for of preparing the nomination dossier and whether there is
the ‘Safeguarding of Intangible Cultural Heritage’ and in free, prior and informed consent of the communities for the
2005,’Convention for the Protection and Promotion of the proposed nomination and to provide the evidence of consent,
&  '  $  #* Y     ))  which is the most time-consuming and challenging part of the
the State Parties to implement appropriate measures for nomination preparation process.
166 Conventions and Capacity Building

In the framework of World Heritage Convention and built             ) 
heritage management, while the experts today like to talk          (   
about ‘community participation’, it appears to be more of for urban development, by reviewing the parameters as to
lip service than actual practice, especially in the context of what should be maintained and what can be changed. In this
India or South Asia in general where heritage conservation respect, the approach of the Intangible Heritage Convention
has been, and is still, expected to be largely met by public may provide an interesting source of inspiration for
subsidy. Thus, there has been no real need for heritage conservation architects.
conservators to talk to people or to get their consent over
heritage conservation work, as the ones they have to Livelihood matters
       ) '   )        ?   $     (*   
who would sanction requisite funds. Such an approach may to change because the primary objective of the Convention
have been valid while dealing only with a limited number of is that traditions be kept alive and remain relevant for the
archaeological sites and dead monuments. However, as the communities. For any tradition to remain relevant, it has
notion of heritage has expanded to include cultural landscape obligatorily evolved to suit the contemporary needs and tastes
and living cities as well as vernacular houses, communities’ of the people. In the context of intangible cultural heritage
participation in heritage management is no more an option safeguarding, ensuring the process of knowledge transmission
but a fundamental prerequisite. is seen as far more important than maintaining old style of
traditional practices.
Accepting the change
Another difference is that 2003 Convention recognises the Another reason why the Intangible Heritage Convention
evolving nature of intangible cultural heritage, thus does not put no emphasis on maintaining the original format is
ask for ‘authenticity’ or ‘integrity’ as fundamental criteria because intangible cultural heritage bearers are living human
for nomination. Instead, it accepts that intangible cultural           )    
heritage keeps changing and considers that what matters primary concern. For intangible cultural heritage bearers to
more is the sense of identity the communities confer to the continue their practice, they have to have the willingness
Intangible Cultural Heritage element. This may be something and good reason to do so. And most of the cases, it implies
)               that their livelihood should be ensured through the practice
professional ethic is to respect as much as possible, the of intangible cultural heritage. To make traditional skills,
original format of the building, including design, fabric, be it craft or performing arts, a source of income, adaption
materials and if possible, management systems, use and is once again necessary to meet the contemporary market
function and even meaning, spirit and feelings (UNESCO and audience. Traditionalist and more conservative scholars
2003). However, once again, as the notion of heritage has may lament such changes as ‘loss of authenticity’, however
expanded, there is more than one reason for conservation it should not be an issue if this gives motivation for ICH
architects to learn how to cope with changes. bearers to continue their traditional skills. Safeguarding

According to the study by UN-Habitat, between 1950 and

2010, the number of people living in urban areas has grown Economics of Heritage
from 730 million to 3.5 billion. Since 2007, over half of the Apart from heritage sites increasingly being entrenched
within living urban areas, there are other reasons
         ' \]F]   
why heritage managers should be concerned about
is expected to rise to 68%. By 2030, Asia will account for understanding their work in relation with the local
more than world’s population and today Asia account for 60% development process. Heritage conservation and
of the world slum dwellers. In India, for instance, the urban maintenance involves costs, which is often not negligible.
population increased from 17% in 1950 to 30% in 2010 and In meeting such costs, relying on public subsidy alone is
no longer possible but suggests that heritage managers
by 2050, it will exceed 54%. Large cities have witnessed
should increasingly go after private investments. In
rapid growth and villages are rapidly growing into cities. any countryof the world, the national budget allocated
In this staggering pace of urbanisation and associated social for culture and heritage is extremely limited and it
challenges, attempting to strictly conserve the past is a lost would remain so.In order to secure funds for heritage
battle. Housing is the key priority of urban policy and to conservation project, heritage managers should be in a
position to understand and explain the return on investment
secure additional land, demolishing heritage buildings is
of a heritage conservation project, as presumablynobody
    >       ' )   especially the communities and private sectors, would
decision makers. Heritage sites that are located in isolated invest funds for conservation, unless their economic gain is
places may not be exempted for long with the current rhythm clearly understood.
of urban development.3 There will be thus be a constant
 Conventions and Capacity Building 167

cultural and creative industry as a tool for sustainable local

Cost of maintaining World Heritage Sites development. The 2005 Convention invites State Parties
The cost of World Heritage nomination and the
management of sites have risen considerably over the past
to make a strategic plan that links cultural resources with
decades.This is due to stricter requirement for nomination local industry and economic development. It encourages
in terms of planning, consultation and developing governments to collect statistical information on the
management structures. A study in UK conducted in 2008 contribution of the culture sector in terms of Gross Domestic
suggested that a cost of achieving World Heritagestatus Product, employment and export market. It also encourages
would be up to £ 400,000 (equivalent of US$763,333)
and with additional ongoing management cost of up to £
State Parties to provide enabling environment to support
150,000 per year. In meeting such cost, relying on public artists and cultural professionals and to mobilise public-
subsidy alone is no longer possible but it suggests that private partnership to this end.4
heritage manager should increasingly go after private
investment. The creative, culture-based sector has a steady demand
One tends to think that the mere fact of World Heritage
and is more resilient to economic downturns. The United
inscription leads to local economic gain thanks to increased Nations Creative Economy Report 2010 noted that even at
tourism. However, a study in UK (Lake District World  )  \]]“+\]]Š  )       
Heritage Project 2009)on socio-economic impact of World world exports of creative goods and services continued to
Heritage nomination, and several similar studies suggest grow, reaching US$ 592 billion in 2008, doubling its level
that the impact of World Heritagenomination on tourism
gain is often marginal. In fact, positive socio-economic
in 2002. Particularly noteworthy is the steady growth of
impacts following World Heritage inscription are rarely the global South’s exports of creative goods to the world
accidental but rather, the result of coordinated and well- between 2002 and 2008. In India, between 2003 and 2008,
planned efforts to achieve targeted change. This implies exports of creative goods have increased from US$4.4
thatheritage managers today are required to be equipped to million to US$ 9.45 million with an annual growth rate of
understand and create the link between their conservation
work and overall development issues.
@FŽ]”   )        ) 
the market for creative products is a sign that many people in
the world are eager for culture, social events, entertainment
intangible cultural heritage should be ultimately synonymous and leisure. They are devoting a higher share of their income
to ensuring the well-being of intangible cultural heritage to memorable life experiences that are associated with status,
practitioners through the practice of their traditional style, brands and differentiation.
knowledge and skills.
It is, therefore, more and more common for governments to
For built heritage too, conservation work should be primarily mobilise their cultural heritage as means of local branding,
guided by the concern for socio-economic wellbeing of the enhancing the quality of living, and attracting visitors (Greffe
local community rather than the academic interest of a small 2013). A city hosts complete market chains spanning from
community of cultural elites to maintain the original physical production to distribution to consumption and has all the
fabric of heritage buildings. Ideally, heritage conservators necessary actors non-government organisations, private and
should be in a position to envision how conserving a heritage public entities as well as media and educational institutions,
building would solve some of the development needs of the to implement an action plan. A city is small enough to create
                tangible impact, yet large enough to serve as a gateway to
guiding principle in determining what to maintain and what international communities. Thus, several cities have boosted
may be permissible for change in a heritage building. their efforts to use urban backdrops for the holistic promotion
of art, culture and heritage, establishing a signature brand as
CONVENTION FOR THE DIVERSITY OF a result.
CULTURAL EXPRESSION
Mobilising heritage and cultural assets for urban
Creating synergy between culture and economy development
The Convention for the Protection and Promotion of the In the survey conducted in 2009 by the European Union
Diversity of Cultural Expressions adopted in 2005 was born (EU) on the Perception of Quality of Life in 75 European
out of observation of a close relation between culture, trade Cities, ‘Satisfaction with Cultural Infrastructure’ such as
and economic development. Recognising that market forces concert halls, museums and libraries constitute an important
and international trade are playing a key role in disseminating parameter to determine the quality of life in a city, along
and promoting cultural expressions; both traditional and with the ‘Satisfaction with the Public Space’ (market and
modern, the Convention urges the State Parties to put pedestrian areas), ‘Satisfaction with public parks and gardens’
into place appropriate policy measures to support local as well as the ‘Beauty of Streets and Buildings in One’s
168 Conventions and Capacity Building

Cultural Industries sculpture, photography, photo-engraving, video art,

Cultural industries are those industries that combine the computer graphics, graphic arts, electronic imaging;
creation, production and commercialisation of contents services for the production, dissemination, promotion
which are intangible and cultural in nature. These contents and exhibition of visual arts; royalties and licence fees.
are typically protected by copyright and they can take the x Crafts, design and architecture: ceramics, fabrics,
form of goods and services. Cultural goods and services embroidery, basketry, glass, jewellery, leather, wood,
refer to those goods and services that embody or convey wrought metal work, metals, garments and accessories,
cultural expressions, meanings and value. Cultural goods furniture, interior decoration; designer objects;
and services include among others goods and services in architectural services; services for the production,
the following categories: distribution and promotion of crafts and designs, etc.
x Publishing, printing and literature: books, newspapers, x #   @  „^     ^
periodicals, other printed matter, ebooks, e-magazines radio and television programmes, entertainment
etc.; services for the publication, distribution, software (video games, educational programmes
dissemination and promotion of books, newspapers, etc.), Internet creativity sites, virtual reality, broadband
printed matter, electronic publications etc.; library video broadcasting (video streaming) etc.; radio and
services etc.; royalties and licence fees. television services, radio broadcasting service, services
x Music and the performing arts: music recordings, for the production, distribution, operation, dissemination
musical instruments, musical compositions and &  ^     ^  
publications etc.; festivals, concerts, plays and artistic television programmes; royalties and license fees.
performances, dance, opera, orchestral music, x Cultural heritage: antiquities, collectors’ items, museum
songs, other performing arts (circus, puppet theatre, services, archive services (documents, recordings
pantomime, street performances etc.),; performing arts of items of the intangible cultural heritage, etc.),
venues (theatres, concert halls, marquees, etc.); music preservation services for historic sites and monuments;
and performing arts production, dissemination, operation services relating to the safeguarding and transmission of
and promotion services; royalties and license fees. rituals, narratives, folktales.
x Visual arts: painting (oils, drawings, engravings), Source: Cavallin & Harding 2003

neighbourhood’. Thus in Europe, it is more common to see development agenda. Thus, the conventional antagonism
the municipalities actively investing in the conservation of between heritage versus development remains the norm
historical areas and the use of the same for the creation of with conservation perceived as an obstacle as opposed to an
public spaces for cultural activities as part of their urban enabler of development.
renewal strategy. It is also common for municipalities to
feature their artistic and creative talents as part of their In turn, those actors working in the spheres of 2003 or 2005
sustainable urban strategy. Examples include the UNESCO Convention seem to have better embraced the notion of
Network of Creative Cities, EU’s European Capitals of heritage and development through their focus on livelihood
Europe programme or Korea’s development plan to transform and industry development and markets and positive impact
Busan into a creative city. In this context, heritage building of cultural heritage therein. Working with, as well as learning
conservation is not a stand-alone exercise but an integrated from, these two younger siblings of the Convention would
part of overall urban regeneration, with clear targeted goals to            
contribute to the city’s development and local wellbeing.    )           
development process.
CONCLUSION

UNESCO Recommendation for HUL is an opportunity to

(   '              
in symbolic and romantic terms but in concrete terms, with Moe Chiba has been appointed as Programme Specialist and
accountability towards those local communities whose life    *ƒZ+$*_  $
Bhutan, India, Maldives and Sri Lanka, since August 2006.
are directly impacted by conservation work. Traditionally,
Moe is in charge of coordinating programmes on Tangible and
conservation architects have not been trained to deal with Intangible Cultural Heritage, Cultural Industries and Heritage
economic development or social issues. Besides, there seems Tourism among others. During her special leave between
to be a prevailing hesitation on the part of government December 2010 and March 2012, she explored the possibility
cultural departments and public heritage institutions in India of introducing culture-based development for rural India. Moe
resumed her position at UNESCO New Delhi in April 2012.
to consider themselves as part of actors accountable for the
 Conventions and Capacity Building 169

Bibliographic references        ‚    List of Intangible Cultural Heritage, although
* Cavallin, J & Harding, T 2003, Cultural heritage as follows: apparently similar to the World Heritage List,
Policy for Development-Evaluation of the (…) the practices, representations, is different in nature in that the it is meant to
Stockholm Action Plan 1998, UNESCO, expressions, knowledge, skills-as well as showcase the diversity of intangible cultural
Sweden. the instruments, objects, artefacts and heritage in the country, and not intended to
* Greffe X 2013, ‘Urban Planning and Cultural cultural spaces associated there with-that create a hierarchy among those elements
Heritage, Which Alliances?’ 4th Biennial community, groups and in some cases, which are listed (with OUV) and those which
Conference of the Indian Heritage Cities individuals recognise as part of their cultural are not (therefore no OUV).
3
Network, IHCN, Pune. heritage. This intangible cultural heritage, For instance the case of Pyramid of Gyza
* Rebanks Consulting Ltd & Trends Business transmitted from generation to generation '& ^@    ‚'     
2009, ‘Is there opportunity for economic is constantly recreated by communities urban expansion of Cairo over the past
gain?’ World Heritage Status, Lake District and groups in response to their interaction decades.
4
World Heritage Project, Cumbria. with nature and their history, and provides Unlike 1972 or 2003 Conventions, 2005
* UNESCO 2013, Creative Economy Report them with a sense of identity and continuity      &  
2013, UNESCO World Heritage Centre, (…) ” (Article 2.1 ). The “intangible cultural types of cultural heritage. The primary
Paris, viewed November 2013, <http:// heritage” is manifested in various domains, & &          
www.unesco.org/new/en/culture/themes/ such as: “oral traditions and expressions, importance of cultural policy on an equal
creativity/creative-economy-report-2013- including language (…); performing arts; footing as trade policy and to strike a
special-edition/>. social practices, rituals and festive events; balance between the two policy spheres
* UNESCO World Heritage Convention 2003, knowledge and practices concerning nature so that they are mutually enhancing and
Operational Guideline, UNESCO World and the universe; traditional craftsmanship promote the diversity of cultural expressions
Heritage Centre, Paris. (Article 2.2). worldwide. It does not have any ‘list’ unlike
2
* United Nations 2013, Creative Economy Convention foresees two lists: List of the two other conventions, thus it is perhaps
Report, UNESCO, UNDP, Paris, viewed Intangible Cultural Heritage in need of the least popular of three. Nonetheless, the
November, 2013, <http://www.unesco.org/ Urgent Safeguarding and Representative 2005 Convention provides an important
new/en/culture/themes/creativity/creative- List. Between 2008 and 2012, nearly 300 &       &     
economy-report-2013-special-edition/>. intangible cultural heritage elements were the link between culture and economic
inscribed on the Representative List. This development and how to create synergy
Notes is an extremely rapid pace noting that World between them.
1
"       ‚    Heritage List has spent 40 years to have
Heritage as practices, The UNESCO 980 elements on the list. Representative

Capacity Building for World Heritage Sites in India

Challenges and opportunities
52+,7-,*<$68

BACKGROUND The importance of capacity building for World Heritage

sites has been well recognised globally. The World
India’s rich and varied World Heritage properties need Heritage Capacity Building Strategy (WHCBS) adopted
    '     )      by the World Heritage Committee in 2011 was a starting
these irreplaceable resources of humankind to future point in the development of a six year programme for
generations. This places tremendous responsibility capacity building, as a joint initiative of International
on heritage institutions and professionals to develop Centre for the Study of the Preservation and Restoration
   '      of Cultural Property (ICCROM), International Union
methodologies and techniques for protecting all those for Conservation of Nature (IUCN), The International
tangible and intangible attributes that contribute towards Council on Monuments and Sites (ICOMOS) and the
Outstanding Universal Value (OUV) of these properties. World Heritage Centre.
170 Conventions and Capacity Building

The intended outcome is a programme that will make urban landscapes and also emerging methodologies for
a strong contribution to capacity building within assessment of their values while taking into account
the overall World Heritage system and will respond the sensitivities of the Indian cultural context. Also,
        ?$„   methods for undertaking comparative analysis at
periodic reporting process. These needs include better global and regional level need to be understood well to
cooperation between the nature and culture sectors, prepare strong nominations. Serial nominations would
better development and access to information and good deserve special attention in this regard. Formulation of
practice as well as achieving diversity and regional appropriate management systems for World Heritage
balance amongst recognised international experts properties also needs special consideration with regards
working on World Heritage issues. The programme to capacity building. The management should aim at
will also address the need for greater capacity amongst protecting the designated OUVs through appropriate
regional capacity building organisations, communities national and local legislations, maintenance and
and networks (ICCROM, ICOMOS & IUCN 2012). monitoring procedures, institutional mechanisms
     )    
In addition, the World Heritage Centre in cooperation Accordingly, the capacity of site managers and decision
with ICCROM, ICOMOS and IUCN have published makers for formulating, implementing and reviewing
Resource Manuals on four important themes as such management systems needs to be developed
guidance tools for State Parties. These include           *   
‘Managing Natural World Heritage’, ‘Managing World Heritage properties.
Cultural World Heritage’, ‘Managing Disaster Risks
for World Heritage’ and ‘Preparing World Heritage World Heritage is increasingly vulnerable to natural
Nominations’ (UNESCO 2013). and human induced disasters caused by hazards such
  †= ( ' ) (   
Several training courses have also been organised terrorism. Climate change is further exacerbating the
by international and regional organisations such as frequency and intensity of hydro-meteorological events
UNESCO, ICCROM and World Heritage Institute thereby putting World Heritage properties located on
            ƒ  mountainous slopes and the coast at greater risk than
Region (WHITRAP) on various themes to build ever before.
the capacity of organisations and professionals.
The objective is to enhance their theoretical and Recognising these challenges, World Heritage
practical knowledge on the various themes related Committee approved a strategy for risk reduction at
to heritage conservation and management. However World Heritage properties in 2007. Undoubtedly, these
   '         World Heritage in India that are exposed to multiple
also need to be complemented with capacity building hazards and vulnerabilities, need to put in place disaster
programmes at the national level so as to better tailor risk management as part of the overall site management
them according to local social, cultural, economic and systems. This would necessitate adequate capacity of
institutional context and needs. The following section the site staff to undertake risk assessment and formulate
looks at the key thematic areas for capacity building of measures for prevention and mitigation, emergency
World Heritage sites in India. preparedness and response and post-disaster recovery.
These must take into consideration the optimum safety
THEMATIC AREAS FOR CAPACITY level as well as protection of heritage values. Besides
BUILDING this, improved coordination between heritage and civic
defence agencies needs to be established and practiced
One of the most important challenges for the State through regular drills and simulations.
Parties is to prepare nomination dossiers according
to the criteria and format set by the Operational One of the critical challenges confronting World
Guidelines of the World Heritage Convention, which Heritage properties in India is the lack of adequate site
are regularly updated. The most important aspect of the documentation and inventories. Therefore adequate
nomination is the statement of OUV that is the basis capacity also needs to be built in this area through use
of evaluating a nomination by the advisory bodies of of state of the art technology such as three dimensional
the Convention. This requires an understanding of the laser scanning and analytical tools like Geographical
new categories and approaches in heritage conservation )  ' ) Q %    ) 
such as 20th century heritage, heritage routes, historic areas for capacity building include interpretation and
 Conventions and Capacity Building 171

communication techniques, heritage impact assessment Moreover, it is critical to encourage multi-disciplinary

and preventive conservation techniques. training that aims at integrated heritage management
practices for various types of tangible and intangible
TARGET AUDIENCE AND DURATION as well as movable and immovable heritage. This
would also require collaboration between professionals
Capacity building programmes need to target audience from diverse disciplines ranging from anthropology,
at multiple levels. While on one end of the spectrum, archaeology, architecture, collections management,
professionals and site staff responsible for managing conservation science and social sciences. Also
these properties need to be trained in various tools capacity building activities should aim at enhancing
and skills, on the other end, communities need to collaboration between heritage institutions and
be engaged and trained in various activities for     )     
maintenance, monitoring and emergency response. civic defence, environment, infrastructure and urban
Awareness of decision makers from relevant planning as this is crucial for effective management of
institutions can also be built through round table World Heritage properties especially those that are a
meetings so that they can appreciate various principles, part of the living urban environment.
tools and practices for better management of World
Heritage properties. Depending on the type of target Such activities should be organised in close partnership
audience, the duration of various capacity building with academic and research institutions that have
activities can range from half day meetings for decision conservation and heritage management programmes
makers to two or three week long hands-on training and laboratories for testing materials. Last but not the
courses for the site staff. least, it is important not to consider capacity building
activities as merely an end in themselves but as part
Rather than only targeting individual professionals, of a long term process aimed at improving heritage
the capacity building initiatives should primarily aim management for World Heritage, so as to pass down
at building the capacity of the internal staff of the the unique heritage of humanity to future generations.
organisations responsible for managing World Heritage These would also serve as best case examples for
so that their collective ability is enhanced through improving general heritage management practice in the
various tools and skill-sets for making appropriate country. For this purpose, the organisations responsible
interventions and decisions. for managing these properties must take ownership of
the different activities and regularly engage with the
PEDAGOGICAL METHODS various stakeholders.

Capacity building activities should use pedagogical

methods that are suited for various kinds of target
audience. These can range from interactive discussions, Rohit Jigyasu is a conservation architect and risk management
classroom lectures based on case studies illustrating consultant from India, currently working as UNESCO Chair
professor at the Research Centre for Disaster Mitigation of
challenges, as well as good practices and hands on
Urban Cultural Heritage at Ritsumeikan University, Kyoto,
learning through on site, practical work. Field based Japan. He is a member of ICOMOS India and President of
training programmes are best suited for the site staff +$~$Z     Z  +""  < 
responsible for managing the site on a day to day Preparedness (ICORP). He has also been consultant to
basis. It is also important to use local languages as the several national and international organizations, such as the
Archaeological Survey of India, UNESCO, ICCROM and the
main medium of communication so that these can be Getty Conservation Institute, for conducting research and
easily comprehended and applied by the staff that is training on Cultural Heritage Risk Management.’
responsible for regular maintenance and security.

Bibliographic References
* Š^Š™•–[•^World Heritage Capacity Building Newsletter,
Q‹^         ^@ ‡ Q
* ƒ     •–[‹^ƒ     ^
Paris, viewed December 7, 2013, <http://whc.unesco.org/en/resourcemanuals/>.
172 Conventions and Capacity Building

Developing Regional Strategy for Asia and the Pacific

-,$1=+28$1'3,1*.21*

World Heritage Institute of Training and Research for programmes and are widely disseminated to enrich
     ƒ    ? ƒ  =   the capacity of a broader audience with regional
leading role in developing a regional capacity building experience.
   '      ƒ        x Regional cooperation, networks and information
of the second cycle of Periodic Reporting and seeks to sharing mechanisms are strengthened to enable
              effective delivery of capacity building materials
and opportunities while synergising initiatives with
Developing the strategy started with understanding    
the capacity needs for the region in relation to heritage
conservation and development. The results of the Based on these strategic objectives, a programme
Periodic Reporting exercise and the analysis of State framework referring to the Result-Based Management1
of Conservation reports of sites in the region helped approach has been developed to collect and upstream
reviewing critical issues and challenges and served available capacity building resources in the pursuit
as key references to assess needs. In addition, a of common goals. In order to mobilize and synergise
questionnaire was designed to gather further insight regional resources, a broad consultation process
into the current capacity building situation. The was launched in August 2013 to invite capacity
questionnaire was distributed in July 2012 and 32 valid building providers of the region to share their relevant
responses were received. programmes at regional and sub-regional levels.

After analysing the collected information, strategic The data derived from this consultation process will
objectives were proposed in response to the prior serve as an updated regional inventory of capacity
)             building activities that will be shared among capacity
with the World Heritage Centre, advisory bodies and building providers and other relevant stakeholders in the
regional experts. These are: region. It is expected to enhance mutual understanding
x Exchange between cultural and natural heritage is of available capacity building resources and promote
strengthened to develop an integrated approach of relevant programmes among a wider range of audience.
conservation and management with emphasis on
management effectiveness, sustainable tourism and The success of this strategy and its associated
risk preparedness in view of dynamic local contexts programmes relies on the input and commitments of
and existing planning systems. State Parties and capacity building providers of the
x Awareness of public and key stakeholders on the region. In return, it will strengthen information sharing
main concepts and procedures of the World Heritage and regional cooperation to better serve various actors
Convention is raised, which in turn strengthens public of the region in heritage conservation and development.
supervision of relevant legal enforcement.
x Respecting traditional knowledge, local communities
Jian Zhou is the Deputy Dean at College of Architecture and
are empowered to participate in tourism development, Planning in Tongji University. He is also the Director, World
heritage management and monitoring process and to Heritage Institute of Training and Research for the Asia and the
>'           = <   Z  
x Guidance materials, toolkits and training modules in Ping Kong is the International Project Coordinator at World
Heritage Institute of Training and Research for the Asia and the
response to regional emergent needs are developed = <  #Z  
with the support of regional capacity building

Bibliographic references 2013, < http://unesdoc.unesco.org/ reform process, to shift the focus from
* •–[[^X  %  images/0017/001775/177568E.pdf>. activities, projects and programmes linked
Programming, Management and Monitoring in broad terms to UNESCO’s mandate to
(RBM) approach as applied at UNESCO’, Notes the achievement of clear expected results
1
Guiding Principles, UNESCO World Result-Based Management (RBM) is derived from that mandate.
Heritage Centre, Paris, viewed November applied as the central element of UNESCO
 173

Heritage Album
30 World Heritage Sites in India
Taj Mahal
Date of Inscription: 1983
Criteria: (i)
Source: Siddhartha

Fatehpur Sikri
Date of Inscription: 1986
Criteria: (ii)(iii)(iv)
Source: Tapasya samal
174

Agra Fort
Date of Inscription: 1983
Heritage Album
Criteria: (iii)
Source: Harsh Vardhan Jain

Hill Forts of Rajasthan

Date of Inscription: 2013
Criteria: (ii)(iii)
Source: DRONAH
 175

Heritage Album
Churches and
Convents of Goa
Date of Inscription: 1986
Criteria: (ii)(iv)(vi)
Source: Yogesh Kumar

The Jantar
Mantar, Jaipur
Date of Inscription: 2010
Criteria: (iii)(iv)
Source: DRONAH
176

Qutb Minar and its

Monuments, Delhi
Heritage Album
Date of Inscription: 1993
Criteria: (iv)
Source: Johnson Leichombom
Humayun’s Tomb, Delhi 177
Date of Inscription: 1993
Criteria: (ii)(iv)
Source: Chandani Chowdhary

Heritage Album
178
Heritage Album

Red Fort Complex

Date of Inscription: 2007
Criteria: (ii)(iii)(vi)
Source: Tapasya Samal

Chhatrapati Shivaji Terminus

Date of Inscription: 2004
Criteria: (ii)(iv)
Source: Ritwik Mathur
 179

Heritage Album
Ellora Caves
Date of Inscription: 1983
Criteria: (i)(iii)(vi)
Source: Project Team, CRCI

Ajanta Caves
Date of Inscription: 1983
Criteria: (i)(ii)(iii)(vi)
Source: Rohit Jigyasu
180
Elephanta Caves
Date of Inscription: 1987
Criteria: (i)(iii)
Source: Parth Sethi
Heritage Album

Group of Monuments
at Hampi
Date of Inscription: 1986
Criteria: (i)(iii)(iv)
Source: Pranjal Rai
 181
Sun Temple, Konârak
Date of Inscription: 1984
Criteria: (i)(iii)(vi)
Source: Saptarshi Sanyal, c/o ASI

Heritage Album
182
Champaner-Pavagadh
Archaeological Park
Date of Inscription: 2004
Heritage Album
Criteria: (iii)(iv)(v)(vi)
Source: DRONAH
 183

Heritage Album
Buddhist
Monuments at Sanchi
Date of Inscription: 1989
Criteria: (i)(ii)(iii)(iv)(vi)
Source: Bala Krishnan
184 Khajuraho Group of Monuments
Date of Inscription: 1986
Criteria: (i)(iii)
Source: Tapasya Samal
Heritage Album
Rock Shelters of Bhimbetka
Date of Inscription: 2003
Criteria: (iii)(v)
Source: Parul G Munjal

Heritage Album
186

Mahabodhi Temple
Complex at Bodh Gaya
Heritage Album
Date of Inscription: 2002
Criteria: (i)(ii)(iii)(iv)(vi)
Source: Pankaj Jain

Group of Monuments at Mahabalipuram

Date of Inscription: 1984
Criteria: (i)(ii)(iii)(vi)
Source: Harsh Vardhan Jain
 187
Great Living Chola
Temples

Heritage Album
Date of Inscription: 1987
Criteria: (ii)(iii)
Source: Sathyabhama Badhreenath
188
Heritage Album

Group of Monuments at Pattadakal

Date of Inscription: 1987
Criteria: (iii)(iv)
Source: DRONAH

Mountain
Railways of India
Date of Inscription: 1999
Criteria: (ii)(iv)
Source: Kai Weise
 189

Heritage Album
Manas Wildlife Sanctuary
Date of Inscription: 1985
Criteria: (vii)(ix)(x)
Source: Bivash Pandav

Nanda Devi and Valley of

Flowers National Parks
Date of Inscription: 1988
Criteria: (vii)(x)
Source: V P Uniyal
190
Sundarbans National Park
Date of Inscription: 1987
Criteria: (ix)(x)
Source: Pradeep Vyas
Heritage Album

Kaziranga National Park

Date of Inscription: 1985
Criteria: (ix)(x)
Source: Benzing Kumbang
 191

Heritage Album
Keoladeo
National Park
Date of Inscription: 1985
Criteria: (x)
Source: Bhumesh Singh Bhadouria (right);
Vinod B Mathur (below)
192

Western Ghats
Heritage Album
Date of Inscription: 2012
Criteria: (ix)(x)
Source: Karthikeyan Vasudevan

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.
 Events and Conferences 193

Events and Conferences

INTERNATIONAL CONFERENCE ON Academic Research Centre (DAKAM) Cambridge departments and nine leading
USING NATURAL AND CULTURAL Website: http://www.archhistconference. conservation organisations based around
HERITAGE IN SUSTAINABLE org/ Cambridge, and its focus on issues of
DEVELOPMENT-SYNERGY FOR management and leadership. As a result,
DEVELOPMENT INTERNATIONAL SCIENTIFIC    
Date: March 24-26, 2014 CONFERENCE ON PROTECTION post-experience students from around
Location: Bergen, Norway OF CULTURAL FROM NARURAL the world. There is scholarship funding
Detail: The theme of the international DISASTERS AND MAN-MADE available for the academic year beginning
conference focuses on the UNESCO DISASTERS in October 2014.
Conventions on World Heritage (1972), Date: May 8-10, 2014 Contact: emily.chenery@geog.cam.ac.uk
Intangible Cultural Heritage (2003) and Location: Zagreb / Šibenik Website: http://www.geog.cam.ac.uk/
Diversity of Cultural Expression (2005). Detail: Over the last couple of years the graduate/mphil/conservation/
The overall goal of the conference is to protection of cultural heritage in cases of
explore synergies between the three various emergencies and disasters has 18TH ICOMOS GENERAL ASSEMBLY
conventions, how they can be utilised been a major issue among specialists AND SCIENTIFIC SYMPOSIUM ON
to realise their related ambitions and         HERITAGE AND LANDSCAPE AS
how other UNESCO related instruments, preservation of heritage. The conference HUMAN VALUES
regional and national mechanisms and is part of a three-year project aimed Date: November 10-14, 2014
practices can be fruitfully implement at the development of guidelines for Location: Florence, Italy
as a whole. Target participants include a strategic plan for the protection of Detail    
researchers in cultural and natural cultural heritage from disasters and the will explore the theme ‘Heritage
heritage and sustainable development, formulation of a proposal for introducing and Landscape as Human Values’
practitioners in management of heritage amendments to the existing legislation,   !  
sites and related instruments on the local as well as at the determining of the key and experiencing the identity of
level and higher levels. institutions and individuals which will communities through tourism and
Website: http://whc.unesco.org/en/ be involved in the development and interpretation; Landscape as cultural
events/1124 implementation of this strategic plan. habitat; Sustainability through traditional
Website: http://chp.nsk.hr/en/ knowledge; Community-driven
17TH ANNUAL US/ICOMOS conservation and local empowerment and
INTERNATIONAL SYMPOSIUM ON ICOMOS-ISCS INTERNATIONAL Emerging tools for conservation practice
THE VENICE CHARTER AT FIFTY: CONFERENCE 2014 ON Contact: symposium@icomos.org
A CRITICAL APPRAISAL OF THE CONSERVATION OF STONE AND Website: http://www.iccrom.org/eng/
VENICE CHARTER AND ITS LEGACY EARTHERN ARCHITECTURAL  " #$%&'" # " #&&"%*"
Date: April 3-5, 2014 HERITAGE Callforpapers_ICOMOS.pdf
Location: Philadelphia, Pennsylvania Date: May 20-23, 2014
Detail: 2014 marks the 50th anniversary Location: Kongju National University, IUCN WORLD PARKS CONGRESS 2014
of the Venice Charter. Contemporary Gongju, Republic of Korea Date: November 12-19, 2014
conservation has long held to the Detail: ICOMOS-ISCS is the International Location: Sydney, Australia
principles of the Venice Charter. In       Detail: The sixth International Union for
recent decades a number of principles ICOMOS. The ISCS’ purpose is to Conservation of Nature (IUCN) World
and assumptions in the Venice promote the knowledge and the Parks Congress will serve as a vital link to
Charter have been critiqued, adapted preservation of inorganic porous building achieving IUCN’s overall vision of a ‘just
and superceded. Social, economic,          world that values and conserves nature’
technological, and cultural changes over stone conservation. The International and deliver the IUCN Programme 2013-
the last 50 years demand that the Venice Conference will take place on May 20-23, 2106.
         2014 in Gongju, Korea and will be hosted Contact: Trevor Sandwith, trevor.
carefully which will be done during the by Kongju National University. sandwith@iucn.org
course of this conference. Contact: iscs2014@kongju.ac.kr Website: http://www.iucn.org/about/
Contact: Dr. Donald Jones, don.jones@ Website: http://www.kongju2014.org/ work/programmes/gpap_home/?11730/
usicomos.org, 202-463-1291 main/ IUCN-World-Parks-Congress-2014-build-
Website: http://www.usicomos.org/ up-underway
symposium MASTER IN CONSERVATION
LEADERSHIP 2014
ARCHHIST ‘14/CALL FOR PAPERS: Date: Friday, August 29, 2014;
PERIODS, MOVEMENTS, OUTSIDERS Wednesday, October 1, 2014
Date: April 3-5, 2014 Location: Cambridge Corrigendum
Location: Istanbul, Turkey Detail: This course is a full time, one Volume X, Issue 1 Spring/Summer
Detail: History of architecture, tracing the year Masters, aimed at graduates of 2013. On page 89, there was an
changes in architecture through various leadership potential with at least three error in print for the caption of image
traditions, regions and overarching      at the bottom. The correct caption is
stylistic trends are the themes for the biodiversity conservation. The unique ‘Ganga Mandir-Symbol of catholicity
conference. feature of the course is its delivery by a of Jat Rulers’.
Organised by: Eastern Mediterranean collaboration between six University of
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