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Lahore FortMaster Plan
United NationsEducational, Scientific and
Cultural Organization
A project of Norway funds-in-trust
Produced and published byUNESCO Islamabad
2006
Prepared and written byDr. Pamela Rogers and Yasmeen Lari
Lahore Fort Master Plan2006-2011
Copyright © 2006 UNESCO, Islamabad
Materials in this report may be reproduced for
non-profit purposes, provided acknowledgment
of the source is made.
This publication is available at:
UNESCO Office
1 Floor, Saudi Pak Tower
Blue Area, P.O. Box: 2034
Islamabad Pakistan
Tel: (92-51) 2800080-83-84
Fax: (92-51) 2800056
e-mail:[email protected]
Website: www.un.org.pk/unesco
Printed at:
Format Designers & Printers
Lahore - Pakistan
st
ACKNOWLEDGMENT
The Lahore Fort Master plan was prepared as part of the UNESCO NORADby a team comprising:
International Consultant
National ConsultantUNESCO National Advisor, Lahore Fort Project
Specialist ContributorsMember, UNESCO Technical Committee,Lahore Fort Project
Member, UNESCO Technical Committee,Lahore Fort Project
Member, UNESCO Technical Committee,Lahore Fort Project
Former UNESCO Regional Advisor for Culturein Asia & the Pacific and Former Director Generalof Archaeology & Museums, Government of Pakistan
Heritage Foundation Pakistan
UNESCO Project Documentation Centre,Federal Department of Archaeology and Museums
Valuable input was provided at the commencement of the project by those attending the 1stand 2nd Experts Meeting at Lahore Fort, August 2003. In depth discussions and valuable inputduring the course of preparing the Master Plan were provided by:
National Project Coordinator, Lahore Fort ProjectDirector, Northern Circle, Federal Department of Archaeology and Museums
Deputy National Project Coordinator, Lahore Fort ProjectSenior Architect, Federal Department of Archaeology and Museums
Senior Advisor International AffairsDirectorate for Cultural Heritage, Rikstanikvaren, Norway
Officers and Staff of the Federal Department of Archaeology and Museums, Northern Circle,Lahore Fort and the UNESCO NORAD Project Documentation Centre, Lahore Fort.
Project for theConservation and Preservation of Lahore Fort
Dr. Pamela Rogers
Yasmeen Lari
Dr. Mahmood Hussain
Fauzia Qureshi
Sajida Haider Vandal
Dr. M. Ishtiaq Khan,
Mr. Saleemul Haq
Mr. Maqsood Ahmad Malik
Mr. Lyder Marstrander
FOREWORD
The Shalamar Gardens and Lahore Fort are masterpieces of art and architecture dating
back to the Mughal period, which was at its height during the reign of Emperor Shah
Jahan (1628-1658). The structures within the Lahore Fort include marble palaces and
mosques decorated with mosaics and gilt. The elegance of the Shalamar Gardens, built
near the city of Lahore on three terraces with lodges, waterfalls and ornamental ponds,
is unequalled.
Unfortunately, the hydraulic system of the Gardens built around 375 years ago was
destroyed in June 1999 to widen the road which borders the gardens on their South
side. Around the same time, there was a real risk that Shish Mahal ceiling might
collapse. In view of the damage observed and the threat facing the two sites, the World
Heritage Committee decided to inscribe the Lahore World Heritage site in the List of
World Heritage Sites in Danger.
UNESCO obtained funds from the Ministry of Foreign Affairs (MFA) Norway, the
World Heritage Centre (UNESCO Headquarters) and the Getty Foundation (USA) for
emergency work to be carried out in both sites. Funds from the Norway Government
were used for the stabilization of Shish Mahal ceiling, the Akbari Gateway, Imperial
Kitchens and the Pictured Wall. A Master Plan for the conservation and preservation of
the Lahore Fort was also developed.
The Getty Foundation support was utilized for baseline surveys at the Shalamar
Gardens with a view to facilitating the conservation process. The findings of the studies
laid down the basis for the development of a Master Plan for the Shalamar Gardens.
They also served as a source of information for the Punjab Government to undertake
conservation work at the Gardens.
UNESCO wishes to thank the Federal Ministry of Culture and the Provincial Ministry
of Culture, Punjab, for their continuous support and cooperation. The dynamic
leadership of the respective Secretaries, Mr. Jalil Abbas and Mr. Taimur Azmat Osman,
has been instrumental in successfully achieving the project objectives.
I hope very sincerely that these efforts will be instrumental in getting the Lahore World
Heritage sites removed from the list of World Heritage Sites in Danger.
Jorge SequeiraDirector/Representative
PREFACE
Culture in Pakistan is enriched with influences and resources of ancient civilizations
that flourished in the region over centuries. The historical and archaeological treasures
inherited by Pakistan are now being increasingly recognized and appreciated outside
the country.
The Lahore Fort and Shalamar Gardens are examples of Mughal architecture,
landscaping and craftsmanship at its pools. The two sites were inscribed together in
UNESCO's World Heritage List as one site, in 1981, for their outstanding universal
value. Due to a general lack of awareness, a lot of encroachments appeared and other
environmental factors resulted in damage to these sites. Critical condition of the Shish
Mahal ceiling in the Lahore Fort, also contributed to placing of Lahore Fort and
Shalamar Gardens on the list of World Heritage in Danger in the year 2000. Since then
both the sites attracted attention of international community, which appreciably
volunteered to safeguard these Monumental Treasure.
With funding from Norway, UNESCO is executing a project, “Conservation and
Preservation of Lahore Fort”, which will conclude in October, 2006. Preparation of a
Master Plan for Lahore Fort was an important component of the project, besides
rehabilitating the Shish Mahal ceiling. Both objectives were successfully achieved
during the first phase of the project.
Parallel to the Lahore Fort Project, UNESCO sought funds from Getty Foundation;
USA and baseline studies were undertaken. The findings were compiled and used as
the basis for development of a Maser Plan for Shalamar Gardens. The two Master
documents, prepared by a team of highly competent national and international
experts, will serve as reference documents and as a 'ready to implement' plan of action
up to 2011 and beyond.
After transfer of these two monuments to the Government of the Punjab (Pakistan) on
18th August, 2004 we are dedicatedly pursuing to improve the condition of both the
monuments to make them alluring for the visitors and beautiful in its appearance. This
is an admitted fact that more damage was done to the monuments by environmental
factors. Government of the Punjab on the basis of recommendations of experts who
have worked for this Master Plan, have developed two different implementation
documents worth Rs. 300 Million each for Shalamar Gardens and Lahore Fort. Work on
improvement of lawns at both the places/sites is already in progress. The environment
of Lahore Fort from two sides is being cleared from a number of encroachments, traffic,
electric pools etc. bringing this back to its original outlook. Same efforts are underway
in Shalamar Gardens and the most neglected area of “Naqar Khana” is being restored
back to its old glory.
We are grateful to UNESCO for its interest and support, which facilitated the Punjab
Government to pursue its goals. The projects enabled training and capacity building of
the relevant staff of Punjab Archaeology Department in documentation, conservation,
project management, monitoring and evaluation. Consequently, the two sites are being
looked after and maintained by trained and knowledgeable personnel of the Punjab
Government.
The Master Plan is a comprehensive document, the implementation of which will
ensure preservation of the World Heritage site and educate the public at large
regarding the significance and value of the country's cultural heritage. Above all, we
hope that by following the direction provided by this user-friendly document, we
would be able to get the two sites off the list of World Heritage in Danger.
Taimur Azmat OsmanSecretaryInformation, Culture & Youth Affairs
Department Government of the Punjab
LAHORE FORT MASTER PLAN
Executive Summary
The Lahore Fort Master Plan provides a detailed and complete framework for determining and
implementing a coherent set of appropriate actions to preserve and manage this World
Heritage site. It aims to ensure that the cultural heritage significance of Lahore Fort is not
compromised, and that the values for which the monument was listed are not lost. It is intended
to serve primarily as a working document for the custodians of the site. However, it also
informs all levels of government and concerned departments of their roles and responsibilities,
as well as providing a format for increased community and voluntary involvement in caring
for the site.
Part 2 presents a brief background to the history of the citadel, and its inscription as a UNESCO
World Heritage site. It discusses the site's significance, emphasizing the responsibility of site
managers to preserve this within the existing legal and regulatory framework.
Part 3 describes the theoretical approach taken by the study team that designed the Master
Plan, clarifying the framework within which work was carried out. This includes the approach
towards intervention and the setting of conservation priorities.
Part 4 presents important core data regarding the significance, condition and conservation
needs of the site's structures. It explains the system for detailed documentation of the site's built
elements. Developed by the Heritage Foundation Pakistan (HFP), this comprehensive
recording system comprises: baseline survey folios; history of intervention dossiers for each
structure; catalogues containing information on the condition of all structures; documentation
catalogues, containing concise and comprehensive forms on each building. This data provides
the baseline information for all conservation and maintenance decisions at the site.
Part 5 describes the current context of Lahore Fort, highlighting the many issues it faces in
terms of site management, conservation, monitoring and maintenance, research, visitation and
the environment in and around the site. The purpose of this section is to clearly identify the
range of critical issues the Master Plan needs to address.
Part 6 of the Plan presents a series of integrated Action Plans, based on expert input. These
address the many issues raised in Part 3, in the context of the information presented in Part 5.
This programme for action aims to achieve the vision set out for the World Heritage site's
future, in both the short and longer term. It defines the overall approach taken, reformulates
issues into objectives and proposes actions for meeting these.
Following the presentation of recommended actions, a detailed Lahore Fort Objectives 2005-11
presents objectives with their level of priority, target date, key implementation agents and an
assessment of the types of resources needed for their implementation.
The subsequent Conservation Priority List sets out Priority 1 (emergency), Priority 2
(stabilization), Priority 3 (preventive conservation) and Priority 4 (conservation) needs for each
building and structure at the site, with indicative costs. The list will guide the allocation of any
funding, ensuring that endangered structures receive the emergency attention and
stabilization necessary to extend their life span.
Part 6 ends with recommendations for further specialist studies and projects to support the
Master Plan's effective implementation. The management and staff of Lahore Fort can
undertake some of these, as part of the on-going preservation programme; others will need to
be carried out by external government agencies.
Finally, Part 7 presents the mechanisms for implementing the Master Plan, including the term
over which the Plan will extend, the various agents responsible for its implementation and a
format for its systematic review at set intervals. Part 7 also includes a set of performance
indicators for reviewing implementation, and planning any corrections required.
CONTENTS
Part 1: Introduction to the Master Plan 1-8
Part 2: Introduction to the Lahore Fort 9-16
Part 3: Theoretical Framework 19-26
Part 4: Inventory of Heritage Resources 27-38
1.1 Need for and role of the Master Plan 3
1.2 Master Plan goal 3
1.3 Specific objectives of the Master Plan 3
1.4 Vision statement for Lahore Fort 4
1.5 Key stakeholders 4
1.6 Master Plan input and structure 5
2.1 Brief historical background 11
2.2 World Heritage Inscription 14
2.2.1 Background to Inscription 14
2.2.2 Statement of cultural significance 14
2.2.3 Implications for the Master Plan 15
2.3 Legal and regulatory framework 15
References 16
3.1 Guiding principles to achieve a long-term vision 19
3.1.1 Maintenance of the authenticity and values of the site 19
3.1.2 Safeguarding all original remnants is a conservation priority 20
3.1.3 Decision-making must be based on full documentation and research 20
3.1.4 Conservation and management programming must be sustainable 20
3.1.5 Tourism should support conservation needs -
not conservation to meet the needs of tourism 20
3.2 Standards for intervention 22
3.2.1 Levels of intervention 22
3.2.2 Selection of intervention level 24
3.3 Prioritization of conservation interventions 25
3.3.1 Conservation situations 25
3.3.2 The aim of prioritisation 26
References 26
4.1 Background to the methodology 29
4.2 Baseline survey folios 32
4.3 History of intervention dossiers 34
4.4 Condition survey catalogues 35
4.5 Documentation catalogues 36
4.6 Recording activity before, during, after 36
References 37
5.1 Site management issues 41
5.1.1 Custodianship and oversight 41
5.1.2 Enforcement of legal protection 42
5.1.3 Staffing 43
5.1.4 Training 44
5.1.5 Past Master Plans 44
5.1.6 Funding procedures 46
5.2 Conservation issues 48
5.2.1 Overall conservation approach 48
5.2.2 Prioritizing critical conservation issues 48
5.2.3 Procedures for implementing conservation work 51
5.2.4 Documentation 51
5.2.5 Conservation laboratory 53
5.2.6 Archaeological repository 53
5.2.7 Skilled artisans in traditional building crafts 54
5.3 Monitoring and maintenance issues 55
5.3.1 Routine monitoring and maintenance 55
5.3.2 Monitoring of conservation works 55
5.3.3 Maintenance of ruins and archaeological remains 56
5.3.4 Cleaning of monuments 56
5.3.5 Damage from watering of plants 56
5.4 Research and publication 57
5.4.1 Overall situation 57
5.4.2 Publication 58
5.4.3 Archaeological research 58
5.4.4 Library 58
5.4.5 Archival material 59
5.5 Site visitation 59
5.5.1 Threats from uncontrolled visitation 59
5.5.2 Emergency protection of fragile elements 60
5.5.3 Estimating visitor capacity 61
5.5.4 Interpretation and education 61
5.5.5 Museum displays 62
5.5.6 Young visitors 62
5.5.7 Community outreach 63
5.5.8 Restoration of historical access and links 64
Part 5: Current Context and Issues 39-74
5.5.9 Tourist facilities 64
5.5.10 Community craft production 64
5.5.11 Use of historical buildings and areas for events 65
5.6 Environmental and physical infrastructure issues 66
5.6.1 Overall situation 66
5.6.2 Environment in the areas surrounding the site 66
a.
b.
c.
5.6.3 Physical infrastructure of the site 68
5.7 Strengths, Weaknesses, Opportunities and Threats (SWOT)
situational analysis of the Lahore Fort World Heritage site 72
References 72
6.1 Introduction 77
6.1.1 Short-term vision 77
6.1.2 Longer-term vision 78
6.2 Site management strategy 79
6.2.1 Overall strategy 83
6.2.2 Site Management Strategy (SMS) objectives 83
SMS Objective 1. Structures for custodianship and oversight 83
SMS Objective 2. Adequate financial resources augmented
by a diversified funding base 89
SMS Objective 3. A mechanism to take advantage of contributions in kind 91
SMS Objective 4. Mechanisms for acknowledgment of contributions 92
SMS Objective 5. An informed management team who understand
overall conservation objectives and priorities/ managing change 94
SMS Objective 6. Development of a Pakistan Conservation Institute
(PCI) as a viable training facility 94
SMS Objective 7. Core competency training for all levels of staff to
upgrade skills and build capacity within the department 96
SMS Objective 8. Implementation of standard operating procedures
(SOP) for frequently performed tasks to ensure consistency and
maintenance of standards 97
Vehicle movement and resulting pollution 66
Encroachment in the environs of the Lahore Fort 67
Integrated urban context 68
a. Sewerage and storm drainage systems 68
b. Water supply and distribution 69
c. Solid waste 70
d. Electrical systems and lighting 70
e. Security 71
Part 6: Programme for Action 75-168
SMS Objective 9. The systematic integration of analytical management
tools into the short and long-term planning by site custodians 98
SMS Objective 10. UNESCO assistance in creating a support network
of international collaboration and interaction 101
6.3 Conservation strategy 102
6.3.1 Overall Strategy 102
6.3.2 Conservation (COS) Objectives 104
COS Objective 1. All work is done in line with the Conservation
Action Priority List 104
COS Objective 2. Procedure for undertaking conservation work 106
COS Objective 3. Full and accessible documentation of the entire site 107
COS Objective 4. A well-equipped and committed conservation
laboratory facility 108
COS Objective 5. Centralized and systematic storage and inventory of
all artefacts and building elements retrieved or excavated from the site 108
COS Objective 6. Reinstallation of original historical building elements 109
COS Objective 7. Development of a conservation resource library 109
COS Objective 8. Training of qualified craftspeople and artisans to
C out conservation and maintenance work in traditional
materials and methods 109
COS Objective 9. A resource collection of building crafts 110
COS Objective 10. Support of in-house conservation 111
6.4 Monitoring and maintenance systems 111
6.4.1 Overall Strategy 111
6.4.2 Monitoring and maintenance (MM) objectives 112
MM Objective 1. Systematic monitoring of the historical fabric and
building condition at the Lahore Fort 112
MM Objective 2. A programme of regular site maintenance 114
MM Objective 3. A system of monitoring conservation work carried
out by the department or under their supervision 116
MM Objective 4. Protection of archaeological resources 116
MM Objective 5. Initiation of an expanded cleaning maintenance
programme for the site 118
MM Objective 6. Review of the planting programme 119
6.5 Research framework 119
6.5.1 Overall Strategy 119
6.5.2 Research Framework (REF) Objectives 120
REF Objective 1. Mechanisms to support a wide ranging research
programme at Lahore Fort 120
REF Objective 2. A Lahore Fort publication programme 121
arry
REF Objective 3. Programme of archaeological research & investigations 122
REF Objective 4. Upgrading of the library 123
REF Objective 5. Programme for collection, storage and inventory of
archival material 124
6.6 Visitation Policy 124
6.6.1 Overall Strategy 125
6.6.2 Visitation Policy (VIP) Objectives 126
VIP Objective 1. An Emergency Protection Plan to control visitor access
and close fragile areas 126
VIP Objective 2. An integrated interpretive policy based on sound
research 129
VIP Objective 3. Upgrading the Museum 130
VIP Objective 4. Drawing the Lahore community into all aspects of the
site's present and future safeguarding 131
VIP Objective 5. Restoring the historical relationship between Lahore Fort
and the walled city 132
VIP Objective 6. Relocating visitor services and amenities 134
VIP Objective 7. Events management 134
VIP Objective 8. Adaptive re-use of historical buildings for visitor use 135
6.7 Environmental and physical infrastructure plan 136
6.7.1 Overall strategy 136
6.7.2 Environmental Plan (EPI) Objectives: the site's environment 136
EPI Objective 1. Revitalizing the site's environs and reinstating a viable
buffer zone 136
EPI Objective 2. Entrance location and corresponding parking areas 138
EPI Objective 3. A phased approach to traffic issues and
pedestrianization in the site's environ 138
EPI Objective 4. Implementing Cultural Heritage Impact
Assessments (CHIA) 140
EPI Objective 5. Partnerships with the Lahore City Government and the
tourism industry to achieve preservation goals 140
6.7.3 Physical Infrastructure (EPI) Objectives 141
EPI Objective 6. Surface water drainage and damage to historic buildings 141
EPI Objective 7. Management of garbage and solid waste 142
EPI Objective 8. Improving toilet facilities 142
EPI Objective 9. Upgrading electrical provision at the site 142
EPI Objective 10. Enhancing the site for evening use 142
EPI Objective 11. Improved standards of security at the site 143
6.8 Lahore Fort Objectives - Action Plan 2004-12 143
6.8.1 Key to the Action Plan Table: 143
6.9 Conservation Priority List 154
6.10 Recommendations for further specialist studies 154
6.11 Sharing Progress with the Public 163
References 164
7.1 Implementing the Master Plan 167
7.1.1 Goals 167
7.1.2 Term of the Master Plan 167
7.1.3 Agents responsible for implementation 168
7.2 Reviewing the Master Plan 170
7.3 Performance indicators for reviewing implementation of the Master Plan 170
References 178
Figure 1.1 Schematic diagram of Master Plan structure and content. 7
Figure 2.1 Map showing the location of the Lahore Fort and Walled city. 12
Figure 4.1 Map of Lahore Fort with structure and building reference numbers 33
Figure 6.1 Model of cultural resource management 79
Figure 6.2 Diagram of the proposed management structure 88
Figure 6.3 Diagram of the proposed diversified funding approach 93
Figure 6.4 Diagram showing the formation process of Pakistan Conservation
Institute 95
Figure 6.5 Diagram showing the structure of the Pakistan Conservation Institute 96
Figure 6.6 Diagram illustrating proposed flow of conservation activities 103
Figure 6.7 Diagram illustrating conservation action priority 105
Figure 6.8 Diagram showing monitoring needs 113
Figure 6.9 Monitoring and maintenance teams' structure 114
Figure 6.10 Setting up and implementation of the monitoring and maintenance
programme 115
Figure 6.11 Map showing the areas of exposed archaeological remains and of
archaeological potential 117
Figure 6.12 Long term protection of below ground archaeological resources 123
Figure 6.13 Map Showing Visitors' facilities and routes 128
Figure 6.14 Map showing the Shahi Guzargah (royal route) to link the site with the
walled city 133
Figure 6.15 Map of Lahore Fort and its immediate environs, and existing traffic
management 137
Figure 6.16 Traffic rerouting and designated pedestrian areas 139
Figure 7.1 Partners responsible for implementing Action Plan components
Figure 7.2 Diagram illustrating the review process (MG = Management Group,
TC = Technical Committee, SC = Site Commission) 172
Part 7: Implementing the Master Plan 165-178
List of Figures
List of Tables
Table 3.1 Statement of the site's cultural values. 21
Table 3.2 Statement of the site's contemporary socio-economic values. 22
Table 4.1 Unique numbering system for Lahore Fort structures, showing their
original period and any subsequent interventions. 32
Table 4.2 Summary of documentation and recording system. 37
Table 5.1 Site management issues. 48
Table 5.2 List of conservation issues. 55
Table 5.3 Monitoring and maintenance issues. 57
Table 5.4 Research issues. 59
Table 5.5 Visitor numbers from November 1999 to October 2000. 61
Table 5.6 Site visitation issues. 65
Table 5.7 Environmental and physical infrastructure issues. 71
Table 5.8 SWOT situational analysis at Lahore Fort World Heritage site. 73
Table 6.1 Correlation between the issues raised in Part 3 of this report and the
Action Plan objectives. 82
Table 6.2 Format of Risk Assessment Model 100
Table 6.3. Research Framework: types of studies that would contribute to the
research base 121
Table 6.4 Issues related to the buffer zone and responsible agents 137
Table 6.5 Management Strategy Action Plan 144
Table 6.6 Conservation Strategy Action Plan 146
Table 6.7 Monitoring and maintenance systems Action Plan 148
Table 6.8 Research Framework Action Plan 149
Table 6.9 Visitation Policy Action Plan 150
Table 6.10 Environmental and Infrastructure Plan Action Plan 152
Table 6.11 Building Conservation Action Priority List & Related Costs 156
Table 6.12 Year-wise targets for conservation actions at Lahore Fort 158
Table 7.1 Proposed performance indicators 178
ACRONYMS
NAMES AND TERMS
CYOC C Y O C
HFP H F P
LFA L f a
PDC P D C
PIATR P I A T
R
PTDC P T D C
PCI P C I
ICOMOS I Co M S
ICCROM
ISESCO Is E S C
O
SOP S O P
SWOT S W O T
UNESCO U N E S C
O
Akbar, Jalal-ud-din Mohammad
(1542-1605)
Architrave/s
Auqaf Department
Aurangzeb Alamgir (1618-1707)
ommunity and outh utreach ell
eritage oundation akistan
ogical ramework nalysis
roject ocumentation entre
akistan nstitute for rchaeological raining and
esearch
akistan ourism evelopment orporation
akistan onservation nstitute
nternational uncil on onuments and ites
International Centre for the Study of the Preservation
of Cultural Property
lamic ducational, cientific and ultural
rganisation
tandard perating rocedures
trengths, eaknesses, pportunities and hreats
nited ations ducational, cientific and ultural
rganization
1605.
Moulded surround/s to an opening or recess.
Federal Government of Pakistan Department,
responsible for the upkeep and management of religious
buildings.
Last of the great Mughal emperors of India (1658-1707),
during whose reign the empire reached its widest extent.
Third Mughal emperor of India, who ruled from 1556-
Backet/s
Burra Charter
Capital/s
Chajjas
Dado
Darbar
Eave/s
Fresco
Fretwork
Haveli
Jehangir (1569-1627)
KaravanPakistan
Lahore Fort
Lintel/s
Projections from a wall for support.
Alternative title for the
. See References for full
bibliographic details.
Top part of a column, often decorated with carvings.
See Eave/s.
A strip of wood, metal or stone fixed to a lower part of a
wall.
An official reception held by a local prince, ruler or
British governor in colonial India.
The lower, projecting edges of a roof.
Picture painted on to a plastered wall when the plaster is
still wet.
Word, metal or stone decorated by carving to create a
pattern.
House, often a larger premises built around a central
courtyard.
Fourth Mughal emperor of India (1605-27), the eldest son
of Emperor Akbar.
A community and youth outreach programme,
promoting heritage for a culture of peace, national
integration and development. From 2001, it has
organised heritage 'street fests' and other culture and
heritage-related events - initially in Karachi, and, from
2004, throughout Pakistan.
The appellation dates from the British period. Its Urdu
appellation is Lahore Fort, which translates as royal fort,
or more appropriately, royal citadel.
A piece of stone, concrete or wood over a door or
window supporting the masonry above.
Charter for the Conservation of
Places of Cultural Significance
Mahmood of Ghazni (1170-1206)
Mughal
Pietra dura
Ranjit Singh (1780-1839)
Screen/s
Sepiolite
Shah Burj
Shah Jahan (1592-1666)
Shish Mahal
Spalling
Stratigraphy
Shahab-ul-Din, King of Gazni.
The Mughal Empire ruled the Indian subcontinent for
more than 300 years from 1526 to 1858, except for a brief
period under the Sur Sultans (1540-1555). The British
abolished it in 1858.
Technique of engraving designs in marble and then
inlaying these with thin sections of precisely cut semi-
precious stone in a variety of colours to create pictures or
patterns.
Indian warrior and founder of the Sikh Kingdom of the
Punjab.A partition that partially divides a space.
Hydrated magnesium silicate.
A portion of the Lahore Fort commissioned by Shah
Jehan, it contains the Shish Mahal and number of other
important buildings.
Fifth Mughal emperor of India (1628-1658), the third son
of Emperor Jahangir.
A palace building, forming part of the Shah Burj. It
contains a famous mirrored ceiling.
The splintering or breaking down of stone or concrete.
The study of strata, or layers specifically, the
superposition of soil and geological strata containing
archaeological materials in order to determine the
relative ages of layers.
PART 1
Introduction to the Master Plan
1
2
PART 1
INTRODUCTION TO THE MASTER PLAN
1.1 NEED FOR AND ROLE OF THE MASTER PLAN
1.2 MASTER PLAN GOAL
1.3 SPECIFIC OBJECTIVES OF THE MASTER PLAN
Lahore Fort is the foremost Mughal monument in Pakistan. It reflects the full span of the
Mughal period, comprising architectural and garden elements representing the pinnacle
of Mughal aesthetics, design and artistry. The importance and significance of the
monument have been acknowledged by its inclusion, in 1981, on the UNESCO list of
World Heritage sites. However, it was inscribed without a master plan forming part of
the nomination. Today, negative impacts from environmental degradation, visitor usage
and ill-advised interventions are increasing. Without an appropriate response, they will
continue to increase. A comprehensive master plan is urgently required urgently to
ensure that the cultural heritage significance of Lahore Fort is not compromised, and that
the values for which the monument was listed are not lost.
The overall goal of the Lahore Fort Master Plan is to provide a detailed and holistic
framework for determining and implementing a coherent set of appropriate actions to
preserve and manage this World Heritage site. All efforts must focus on preserving and
enhancing the many values that contribute to the site's universal cultural significance.
The Master Plan meets the following specific objectives:
a. to assess the effectiveness of existing management systems, and propose changes or
new methods which would build on these;
b. to look at ways of generating funds for conserving and developing the site;
c. to achieve baseline documentation and condition assessment of the built and
landscape elements of the entire site;
d. to develop a strategic approach to conservation to ensure that the appropriate level
and type of intervention is applied to specific conservation issues faced at the site;
e. to prioritize all conservation actions, set standards for determining future priorities
and ensure that conservation actions are carried out on the basis of need and urgency;
f. to design a system of regular monitoring to ensure that baseline conditions are
retained, if not improved;
g. to design a practicable system of continuing maintenance for the grounds and all
buildings;
3
h. to set focused, multi-disciplinary research goals involving staff, national and
international scholars and teams;
i. to present a plan that finds the optimal level for visitation, ensuring that the site
benefits rather than suffers and that the visitor experience is enhanced;
j. to recommend ways to improve community out-reach and involvement in the site;
k. to upgrade the physical environment and infrastructure of the site and its environs;
l. to assist site managers in implementing proposals that are not be hindered by changes
in staff or circumstances.
Although it consists of many structures, it is important to treat the site as a single entity
comprising historic structures interlinked by quadrangles and open spaces. Conserving
and safeguarding this entity must be central to all discussion relating to it. Methodologies
adopted need to aim at presenting layers of history and infusing a new dynamismin
developing a sense of historical continuity from the past to the present.
The second Experts Meeting on the Preservation and Conservation of Lahore Fort
organized by UNESCO in August 2003, agreed on the following vision statement.
To transmit to the coming generations an experience of a traditional culture in
all its multiple dimensions, because it is these traditions that encapsulate a
world view and wisdom which has sustained our humanity and our planet for
millennia past.
The following key stakeholders were involved in the design, delivery and receipt of the
Lahore Fort Master Plan.
The Norwegian Government has generously funded the project through the
Norwegian Agency for Development Cooperation (NORAD).
The Government of the Punjab.
The Master Plan addresses the following target audiences.
1.4 VISION STATEMENT FOR LAHORE FORT
Statement of Vision
1.5 KEY STAKEHOLDERS
a. Funders
b. Delivery Partners
c. Target Audience
,
4
i. Custodians of Lahore Fort
The Plan is specifically designed and formatted as a working document that can
be updated as required. For this purpose, there is a range of supplementary
information in Annexures at the end of the main plan.
ii. Concerned provincial and local government departments specifically those
involved with strategic and physical planning within the site and its environs.
The Lahore Fort is an integral part of urban Lahore. Many of the issues concerning
its preservation and presentation need addressing at a city and provincial level.
The Master Plan attempts to identify the roles and responsibilities of all
stakeholders, and proposes systems for liaison and cooperation.
iii. The community and voluntary organizations, especially schools, youth and
women.
As a World Heritage site, the citadel is part of the shared heritage of Lahoris,
Pakistanis and the world as a whole. The Master Plan views access by the
community as an essential component of successful preservation and
management. It aims to involve people in as many ways as possible. It also
provides a format for involving voluntary organizations, in collaboration with
the site's custodians, to ensure greater outreach to the community and young
people.
A diverse range of stakeholders contributed to the Plan's preparation, through a
series of meetings, on-site interviews, discussions and continuing
communication. This ensured that all parties were able to adequately present
their needs and interests as the study evolved. Further input from all parties was
also sought on the Draft Report, in order to finalise the Plan.
The Master Plan is based on relevant documentation and international best practice,
supported by detailed studies carried out by national experts on:
environmental and physical planning;
management and monitoring systems;
visitor management;
building condition assessment;
conservation interventions.
The studies produced were based on extensive research, fieldwork, interviews and
professional experience. Each expert was commissioned to:
1.6 MASTER PLAN INPUT AND STRUCTURE
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make an assessment of existing conditions and a situation analysis;
make recommendations for prioritised action to address identified issues;
develop integrated plans for implementing recommendations;
identify any additional specialist studies needed to enable implementation of the
Master Plan.
The Master Plan study began in August 2003, at the second Experts Meeting on the
Preservation and Conservation of Lahore Fort held at the site. A draft scope for the Master
Plan was presented to the assembled experts for discussion, comment and initial
approval. After ongoing consultation with the Lahore Fort Technical Committee and
integration of expert input, a Draft Master Plan report was submitted in late March 2004.
After modification, the final Master Plan Report was submitted in June 2004.
The Master Plan comprises seven parts:
Part 1 is an introduction to the Master Plan, including the need for the plan, its objective
and aims, vision statement, stakeholder discussions and Plan inputs and structure;
Part 2 introduces the Lahore Fort comprising a brief historical background, an outline of
its World Heritage Inscription and the legal framework in which the site is embedded;
Part 3 summarizes the current situation at Lahore Fort in terms of management,
conservation, monitoring and maintenance, research, visitation, environment and
physical infrastructure, followed by a Strengths, Weaknesses, Opportunities and Threats
(SWOT) situational analysis;
Part 4 gives a brief statement concerning the theoretical framework in which the Master
Plan has been prepared, the overall approach to conservation interventions and the need
for the setting of priorities;
Part 5 provides essential baseline documentation, in the form of detailed catalogues of all
buildings, structures and other heritage resources comprising the Lahore Fort
Part 6 presents a multi-disciplinary programme of integrated action designed to address
the conservation and management issues facing the Lahore Fort ;
Part 7 proposes ways in which the action programme can be implemented and scheduled.
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Figure 1.1 Schematic diagram of Master Plan structure and content
-
Goal and Objectives Theoretical FrameworkWorldHeritagesignificance
Legal ®ulatoryframework
Assessment ofexisting conditionsat the site:
Objectives - ActionPlan
2006 2012
ImplementationMechanisms
ReviewMechanisms
SiteManagement
Conservation
Monitoring &Maintenance
Research Visitation
Environment &Infrastructure
Inventory ofHeritageResources
7
8
PART 2
Introduction to Lahore Fort
9
10
PART 2
INTRODUCTION TO LAHORE FORT
2.1 BRIEF HISTORICAL BACKGROUND
The Lahore Fort World Heritage site is located near the River Ravi, in the northwestern
corner of Lahore's walled city (see Fig. 2.1). Archaeological evidence from the site of the
citadel goes back to pre-Muslim times, although the configuration and layout of the
present citadel is generally agreed to have been initiated by Akbar. After having built
Agra and Fatehpur Sikri as impressive capitals, Lahore became an Akbari showcase for
the best architectural ensembles of the period.
From its planning and its extensive use as a royal residence, it is clear that the site was
envisaged as a fortified palace rather than a defensive fort. Three Mughal emperors,
Akbar, Jahangir and Shah Jahan, concentrated on building exquisite palace structures
after the first fortification walls had been constructed to secure the perimeter of the
citadel. In truth, after the threat posed by Mirza Hakim (Akbar's step-brother), when the
mud brick wall was replaced with stronger brick fortifications, there was no occasion for
the citadel to defend itself from invading armies and it continued to flourish as a palace
when the emperor was in residence at Lahore.
The value of the site as a showcase of Mughal architecture stems from the fact it served as
the garden palace for all the great Mughal emperors and contains exemplary architecture
from each reign. The present configuration of the Lahore Fort can justifiably be attributed
to the master of fortification planning, Jalal-ud-Din Mohammad Akbar. Although built
on the remains of citadels of earlier dynasties, Akbar planned and fortified the present
site when he established his capital in Lahore for the 14 years between 1584-98. Akbar
used the earlier mound, which archaeological evidence dates to pre-Muslim occupations,
as the central core for semi-public and service areas. The earlier perimeter wall of sun-
dried brick was replaced with burnt brick fortification walls, turrets and towers to secure
the citadel's western, southern and eastern periphery. The River Ravi, which then flowed
along the northern periphery, provided a secure and scenic front for the imperial section
of the intensely private palace frontage, raised on subterranean chambers.
It is not certain that Akbar intended the citadel to be a garden palace. However, he did
initiate the process by planning his (female quarters) palace in the form of a
paradise garden. His successors continued to use the (garden quadrangle)
concept, as they developed the citadel palaces along the northern periphery. Thus, the
citadel can be best understood as a conglomerate of linked Each of these is
endowed with its own special introverted spatial characteristics, bordered by
(suites), (towers) or (cells). The linked imperial courts are defined as Ahata-e-
1
harem sera
chahar-bagh
chahar-baghs.
iwans
burj dalans
11
Fig. 2.1: Map showing the location of Lahore Fort, Lahore
12
SHAHDARA
G.T
.R
OA
DR
IVER
RAVI
BAN
DR
OAD
BAND ROAD
RAV
I BRID
GE
SABZI MAN
DI R
OAD
ROAD
ROAD
SABZI MANDI ROAD
IQBAL PARKG.T. ROAD
BADAMI BAGH
BUS TANND
RAILWAY
STATION
DATA
DARBAR
CENTRALMODALSCHOOL
LO
WE
R
MA
LL
CHOBURJI
Jahangir, Ahata-e-Shah Jahan, Ahata-e-Moti Masjid, Ahata-e-Khilwat Khana and Shah
Burj, complete with quadrangle. The highly public Maidan-e-Diwan-e-Aam, although
not a planned , was nevertheless created as an introverted space bordered on
three sides by a large number of , of which the Jahangir period Makatib Khana
formed the northwestern edge.
Akbari period sculptured structural elements found in Jahangir's quadrangle are unique
to the Lahore citadel, the work of the most experienced artisans brought in after the
completion of Fatehpur Sikri. Similarly, the spectacular frescos of the Kala Burj (imperial
residential tower) ceiling demonstrate the skill of Jahangir's court painters in
incorporating influences of European artistic imagery. The pristine classical Shah Jahani
order, with its refined pietra dura in marble seen in the Shah Burj, reflects the aesthetic
preference of the early Shah Jahan period. The picture wall, which extends for three
quarters of a mile along the western and northern fortification walls, is one of the longest
(tile mosaic) murals in the world. Portraying the pursuits and courts of the
Mughals, it represents the high point of both Jahangir's and Shah Jahan's reigns.
After the construction of the Badshahi Mosque by Aurangzeb Alamgir, the later Mughals
did not often frequent Lahore. With the rise of the Sikhs, Ranjit Singh, the one-eyed Sikh
ruler, made extensive use of the citadel. Although he never sat on the throne of the
Mughals, he set up his darbar in the Shah Burj and made the Shish Mahal his favourite
abode. Several rooms were constructed on the roof of the Shish Mahal, as well as the
famed Athdara in the Shah Burj forecourt. Structures were also constructed on other
Mughal buildings - examples include the Mai Jindan Haveli and the palace of Kharak
Singh. During the Sikh Period, Ranjit Singh dismantled and re-used Mughal elements in
buildings constructed by him. The fort suffered enormously during the inter-Sikh wars,
when cannons directed at the walls of the fort irretrievably damaged Shah Jahan's Diwan-
e-Aam.
The British period was also destructive, due to the establishment of a British cantonment
and inappropriate use of elegant palace buildings. In 1905, after the visit of Viceroy
Curzon, action was taken to dismantle cantonment structures after British army units
began to vacate them. A concerted effort to restore Mughal imperial structures dates from
that period.
Although several makeshift British structures were removed, some survived until after
1947. More recently, controversial new constructions have been added to Jahangir's
quadrangle in an attempt to recreate the original quadrangle configuration.
From its configuration, it is evident that the citadel, whilst it helped in the defence of the
city and its residents, was itself dependent on the city for supplies and protection. This
particular relationship was severed during the British period by the opening of a postern
chahar-bagh
dalans
kashi-kari2
13
gate, closing up of the historical Akbari gateway and later construction of the ceremonial
steps on the southern periphery. There is an obvious need to re-establish the link between
the Mughal citadel and Lahore's walled city, as is suggested in the UNESCO report on
.
Lahore Fort was jointly inscribed on the World Heritage List with the Shalamar
Gardens, in 1981. Both sites were inscribed on the basis of Criteria (i), (ii) and (iii),
specifically because 'They represent a masterpiece of human creative genius,
exhibit an important interchange of human values over a span of time or within a
cultural area of the world, or developments in architecture or technology
monumental arts, town planning or landscape design, and because they bear a
unique or at least exceptional testimony to a cultural tradition or to a civilization
which is living or has disappeared.'
The 23rd Session of the World Heritage Committee, meeting in December 1999,
noted that there had been serious damage to the mirrored ceiling of the Shish
Mahal, aggravated by water seepage during the 1999 monsoon season. The
ICCROM recommended the installation of temporary roofing.
As a result, the 23rd session of the World Heritage Committee placed Lahore Fort
on the list of World Heritage sites in danger. No specific reference was made to the
conservation crises at the Lahore Fort. The site was still on the list when this
document was prepared.
The term 'cultural significance' means the 'Aesthetic, historic, scientific, social or
spiritual value for past, present or future generations embodied in the place itself,
its setting, use, associations, meanings, records, related places and related
objects.'
The following statement defines the cultural significance of the Lahore Fort.
Cultural Tourism in Lahore and Peshawar 3
4
5
2.2 WORLD HERITAGE INSCRIPTION
2.2.1 Background to Inscription
2.2.2 Statement of cultural significance
Lahore Fort is the foremost Mughal monument of Pakistan, imbued with layers
of historical and spiritual meaning for locals and visitors alike. Inside its walls
are preserved numerous examples of the apogee of Mughal arts, building crafts
and architectural skills in a single complex, enriched by temporal depth and
continuity from prehistory to the present. The changing and evolving styles
throughout the period and into the Sikh and British eras are richly preserved.
14
Individual elements are spatially arranged according to a set of archetypal
Mughal design principles: a series of chahar-bagh quadrangles presenting a
balanced formal composition of space, water, vegetation and architecture,
texture and colour, light and shade, designed to divide space into public and
private and to provide physical and symbolic transitions between them. In
addition to providing an oasis of green and calm in the crush of urban Lahore, the
site has great didactic potential to teach all ages about the wealth of the past and
its relevance and value to the present and future.
2.2.3 Implications for the Master Plan
6
World Heritage inscription does not provide specific statutory protection or
financial aid from UNESCO. It is an internationally recognized designation,
which encourages national governments and site managers to ensure long-term
protection for sites of global significance. The states that the aim of
conservation is to retain the cultural significance of a place (Article 2.1) and that
places of cultural significance should be safeguarded and not put at risk or left in a
vulnerable state (Article 2.3). It is this cultural significance which is the basis for
World Heritage inscription, and it is the responsibility of states parties to
'Maintain the authenticity and, in the case of World Heritage sites, the cultural
values for which the site was inscribed.'
Master Plan design and implementation has to clearly focus on maintaining and
protecting individual physical elements and the place itself its setting, use,
associations and meanings in order to meet this obligation. Specifically, this
means safeguarding the period fabric of buildings and structures, the details of
style and decorative schemes, the balance of periods represented by new
structures and alterations to existing ones, spatial relationships between
architectural elements and open spaces and the symbolic meaning of spaces and
movement through them. All conservation treatments should guarantee
protection of the site's authenticity, prolong the duration of its integrity and
prepare it for interpretation. A balanced judgment, based on a hierarchy of
resource values and a systematic process of evaluation, is therefore essential for
establishing an appropriate conservation methodology and treatment strategy.
Stipulations contained in the Government of Pakistan's Federal Antiquities Act 1975
(Act-VII of 1976) govern the Lahore Fort and Shalimar Gardens World Heritage sites. The
following stipulations are relevant to these sites.
Burra Charter
7
8
2.3 LEGAL AND REGULATORY FRAMEWORK
15
Clause 3, stating that the Federal Government will constitute an Advisory
Committee.
In accordance with the Act, the Federal Government, by notification in the Official
Gazette, may declare any antiquity to be a protected antiquity for the purposes of the
Act (Clause 10 [1]). There is also a requirement to fix a notification in a 'Conspicuous
place of or near the antiquity.'
The Act is clear, regarding the uses of a protected monument or site. Clause 18 states:
'A protected immovable antiquity shall not be used for any purpose inconsistent with
its character or for a purpose other than that directly related to its administration and
preservation.'
Clause 19 clearly stipulates the fine and punishment in cases where the 'antiquity' is
damaged or destroyed: 'No person shall, except for carrying out the purposes of this
Act, destroy, break, damage, alter, injure, deface or mutilate or scribble, write or
engage in any inscription or sign on, any antiquity or take manure from any protected
antiquity.' Infringement is punishable 'With rigorous imprisonment for a term which
may extend to three years, or with fine or with both.' (Clause19 [2])
Clause 22 requires that 'No development plan or scheme or new construction on, or
within a distance of two hundred feet of a protected immovable antiquity shall be
undertaken or executed except with the approval of the Director General.'
Clause 23 (i) prohibits the placing of 'Any neon signs or other kinds of advertisement,
including bill posting, commercial signs, poles or pylons, electricity or telephone
cables and television aerials, on or near any protected immovable antiquity.'
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References:
1. Lari, Yasmeen, Heritage Foundation Pakistan, 2003, p. 1.12-1.21
2. ibid., p. 1.12-1.21
3. UNESCO, , Islamabad, 2003, p. 86
4. , UNESCO World
Heritage Centre, 2005, paragraph 77, p. 19-20.
ICOMOS Australia, The Burra Charter),
1999, Article 1.2, p.1.
Fielden, Bernard and Jukka, Jokilehto,
ICCROM, Rome, 1993, p. 59
, op cit., Article 2, p. 1.
8. Federal Antiquities Act 1975 (Act-VII of 1976), paragraph 1.
Lahore Heritage Guide,
Cultural Tourism in Lahore and Peshawar
Operational Guidelines for the Implementation of the World Heritage Convention
Charter for the Conservation of Places of Cultural Significance (
Management Guidelines for World Cultural Heritage Sites,
Burra Charter
5.
6.
7.
16
PART 3
Theoretical Framework
17
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PART 3
THEORETICAL FRAMEWORK
3.1 GUIDING PRINCIPLES TO ACHIEVE A LONG-TERM VISION
The following principles below reflect the theoretical approach taken by the study team
when designing the Master Plan. These clarify the framework within which work has
been carried out.
The study team adopted the principle, stated in Article 2.2 of the ,
that the single most important aim of conservation is to retain the cultural
significance or authenticity of a place; the 'Aesthetic, historic, scientific, social or
spiritual value for past, present or future generations.' The study team also
acknowledges the
regarding prerequisites for conservation and maintenance of authenticity. They
state that:
'The authenticity of monuments, buildings and structures is integrally linked to
the temporal narrative embedded in their fabric. Understanding the
chronological development of a monument and the multiple and complex
structural, spatial and decorative layers which result is essential to the
conservation of authenticity.'
It is essential that the values that give the Lahore Fort meaning and significance
are clearly stated, and that all preservation efforts focus on retaining these. Tables
3.1 and 3.2 present a preliminary statement of those values that make the site
significant, and, as such, are elements that must be safeguarded.
Given that values can change in nature and perception, they need to be reviewed
periodically; listing further values and broadening the focus to protection of all
significant values by complementary management.
The study has taken the position that 'The aim of safeguarding of World Heritage
sites is to maintain their authenticity and the values for which they have been
listed. Therefore, any treatment should be based on the strategy for minimum
intervention.' All interventions should be reversible and should maintain the
authenticity of the resource.
3.1.1 Maintenance of the authenticity and values of the site
3.1.2 Safeguarding all original remnants is a conservation priority
Burra Charter
Draft Hoi An Protocols for Best Conservation Practice in Asia,
1
2
The original elements to needing to be safeguarded include those that have
become valuable with the passage of time and changes in historical
circumstances. These accumulated changes have themselves become part of the
19
historical character and material substance of the site: 'This material substance
represents the intrinsic values of the cultural resource; it is the bearer of historical
testimonies and of associated cultural values, both past and present '
John Marshall recognised the importance of retaining original fabric and its
inherent values. His , written in 1923, has served as the main
reference for generations of custodians of the Shalimar Bagh:
'Although there are many ancient buildings whose state of repair suggests at first
sight a renewal, it should never be forgotten that their
and that our first duty is not to renew them but to
preserve them. Broken or half decayed original work is of infinitely more value
than the smartest and most perfect new work.'
The Master Plan has taken the following statements from the
to reflect the pivotal importance of research and detailed documentation
to the conservation process:
'Decisions regarding the type and extent of intervention carried out as part of a
conservation plan should only be taken after extensive research, expert
discussion and weighing of conservation options. Intervention should be the
minimum required to ensure the preservation of the heritage values and
authenticity of a monument or building.'
All programmes and action plans addressing the protection and maintenance of
Lahore Fort must be sustainable. This means that decisions are made on the basis
of up-to-date, reliable and usable information and that all actions are at best
reversible and the minimum required: 'Changing as much as necessary but as
little as possible.' Actions must also be fully documented. Programming should
be designed in such a way that it can continue along clearly defined paths,
following well designed and focused methodologies regardless of administrative
or staff changes at the site.
The consensus of the Master Plan project team is that preserving cultural heritage
and supporting creativity and living culture has to be given precedence. All
efforts to promote cultural tourism need to include adequate controls to prevent
the intrusive and destructive impact of tourism found at many historic sites.
Proposals and recommendations need to ensure that tourist activities do not
.
Conservation Manual
historical value is gone when
their authenticity is destroyed,
Draft Hoi An
Protocols
3
4
5
6
3.1.3 Decision-making must be based on full documentation and research
3.1.4 Conservation and management programming must be sustainable
3.1.5 Tourism should support conservation needs - not conservation to meet the needs
of tourism
20
undermine the authenticity and integrity of the historic structures. Intensification
of tourism can only be justified if the major portion of all earnings is directed
towards the maintenance of cultural assets and the communities on which
tourism is based. Within these provisos, there is ample scope for cultural tourism
to develop and benefit local communities.
CULTURAL VALUES
Table 3.1: Statement of the Cultural Values of the World Heritage Site
Identity value
Relative artistic or technical value
Rarity value
Physical and Visual value
— The emotional ties of
society to the site (aesthetic and spiritual
value, continuity, memorial, legendary,
political, patriotic and nationalistic). It is
based on recognition and the selection of
influences of a resource.
— The
importance of the design and the
significance of its technical, structural and
functional concept and workmanship. It is
based on research and influences the
strategy for treatment of a resource.
— Defines the resource's
rarity, representativeness or uniqueness in
relation to other examples of the type. It is
based on statistics and influences the level
of protection accorded to a resource.
— The value
inherent in the scale, location, physical
form and its impact on the viewer. It is
based on recognition and influences overall
treatment, particularly of site setting.
Lahore Fort is an icon for national identity,
acknowledged as such by all levels of society
even if not fully understood. It is symbolic of
both historical and legendary versions of the
past which are shared by all Pakistanis; a
tangible representation of Muslim rule in the
subcontinent. It provides a link with the pre-
colonial past reviving memories and sentiments
related to a free subcontinent.
Lahore Fort preserves examples of all
architectural styles of the Mughal empire at
their best. It constitutes a standing reference
collection of architectural planning, materials,
methods and decorative traditions. The site
retains the essential plan and design of the
Mughal palace with assemblages representing
all spheres of court life.
Lahore Fort is one of two Mughal citadels which
can exhibit the work of all the great Mughals
Akbar, Jahangir, Shah Jahan and Aurangzeb, in
the nearby Badshahi Mosque. It represents a
unique ensemble of Akbar's stone structural
struts, Jahangir's frescoes with European
imagery, the purity of Shah Jahan's classical
order and the superb JahangirShah Jahan tile
mosic mural depicting the grandeur of the
Mughal Darbar.
Lahore Fort presents an image of grace and
grandeur above the Lahore skyline; a physical
form widely recognized. Physically and
historically linked to the Walled City it forms a
significant historical assemblage.
21
CONTEMPORARY SOCIO-ECONOMIC VALUES
3.2 STANDARDS FOR INTERVENTION
Table 3.2
3.2.1 Levels of intervention
Statement of the site's contemporary socio-economic values
The reason for selecting one level of intervention over others depends upon a
number of factors, including the nature and heritage value of the building or site,
the goals of the conservation project, the scale of the artefact being conserved and
the financial and human resources available.
Most heritage conservation projects necessarily involve a combination of
approaches, rather than isolated interventions. Thus, in a project seeking to return
a building to an earlier appearance (restoration), it may be necessary to reinforce
Economic value
Educational value
Recreational and Social value
— The value generated by
the heritage resource or by its conservation
in terms of potential revenue from tourism,
commerce, use and amenities. It is based
on inherent qualities and their marketing
and influences community priorities and
future conservation funding.
— The extent to which a
resource can inform the present about its
past in the context of cultural tourism. It is
based on assessment of physical integrity
and historical research and influences re-
use and interpretative decisions.
— The
potential for social interaction and
establishing community identity. It is
based on assessment and influences
interpretation and presentation of the site
and visitor interaction.
Lahore Fort is a potentially rich economic
resource with potential revenue generated
through visitation and an appropriate
hospitality infrastructure in the vicinity;
economic benefits could be felt in the Walled
City community resulting from integrated
development. It has the potential for income
generation for the community through craft-
sales based on designs of the Lahore Fort.
Lahore Fort provides a highly visible and
dramatic tool for informing the present about
the many historical and cultural themes of
Pakistan's past; it contains a wide array of
didactic forms, both built and intangible, to
enrich the visitor experience.
Lahore Fort stands at the physical centre of
Lahore and the symbolic centre of the nation; as
such, it is the metaphorical property of a wide
community. Involvement of the community in
safeguarding and caring for the site creates a
sense of pride and commitment in all elements of
society and strengthens social cohesion
22
historic structural elements (consolidation) upgrade entrances, exits, and services
(rehabilitation), and, perhaps, dismantle a section in order to replace intrusive
elements and support historic portions (reassembly).
To discuss various levels of architectural conservation intervention at the site,
standardized terminology and definitions relevant to Pakistan have been adapted
from the and other
international guidelines. Interventions are divided into those showing full,
moderate and limited respect for the historic fabric of a building. A discussion of
these various levels, their conservation implications and the circumstances under
which they might be used, is presented in Annexure 5. They need to be fully
understood by all those involved in conservation planning and regularly referred
to during the decision-making process.
is an act that provides protection by controlling the environment,
including internal and external causes of deterioration. Timely preventive
measures can prolong the life of a historic asset at an economical cost.
is the act or process of applying measures necessary to sustain the
existing form, integrity and materials of a historic property. Work, including
preliminary measures to protect and stabilize the property, generally focuses
upon the ongoing maintenance and repair of historic materials and features,
rather than extensive replacement and new construction. The aim of preservation
is to keep the historic property in its existing state and take measures to prevent
further decay.
is the act of physical addition or application of supportive material
into the fabric of historic property, to ensure its continued durability or structural
integrity.
is the act or process of reviving the concept of an object; to either an
original state, or an appearance it had at a particular period or time. It requires
returning it to a known earlier state by removing features from other periods in its
history or re-assembling existing components without the introduction of new
material. Restoration can also involve replacing missing or decayed parts,
ensuring that this integrates harmoniously with the whole whilst also remaining
distinguishable from the original on close inspection. Missing decorative
elements in restoration work may be justified, but not by falsifying the evidence.
is the act or process of providing for compatible use of a property
through repair, alterations and additions, whilst preserving those portions or
features that convey its historical or cultural values. Any changes made should be
of a substantially reversible nature and cause minimal impact.
Management Guidelines for World Cultural Heritage Sites7
Prevention
Preservation
Consolidation
Restoration
Rehabilitation
23
Reproduction
Reconstruction
is the act or process of copying an existing artefact, often to replace
some missing or decayed parts. Generally used for decorative elements, it is not
recommended for architectural elements.
is the act or process of using new materials on historical fabric. A
necessity in the event of a disaster caused by fire, earthquake or war, it must be
based on accurate documentation and evidence, not conjectures. It is not a
recommended option in the context of Pakistan's heritage.
The critical stage in the conservation process is deciding on which approach or
approaches to take. This decision determines the extent to which the integrity of
the historic fabric is retained. The preferred level of intervention is always that
which shows full respect for historical fabric, maintaining and supporting
existing fabric with a minimum of modern addition. Actions within the second
level of intervention those which exhibit only moderate respect for original
material should only be employed in exceptional situations and with detailed
justification. Actions showing little respect for historical fabric should be avoided
whatever the circumstances.
The reason for selecting one level of intervention over others depends upon a
number of factors, including the nature and heritage value of the building or site,
the goals of the conservation project, the scale of the resource being conserved and
the financial and human resources available.
By necessity, most heritage conservation projects involve a combination of
approaches rather than isolated interventions. In a project that seeks to return a
building to an earlier appearance, it may be necessary to reinforce structural
elements (consolidation), upgrade entrances, exits, and services (rehabilitation)
and possibly dismantle a section in order to replace intrusive elements and
support historic portions (restoration).
Efforts must be made to ensure:
that an appropriate assessment of conservation level(s) is carried out in
advance of any conservation decision-making;
the assessment is based on authentic information and full documentation;
the assessment can be supported by following international standards and
guidelines for conservation, listed in Annexure 8, and that all subsequent
decisions include references to these standards;
that decisions are only made after full discussion between the custodians of
the site, the project management team and the technical committee;
all decisions are publicized for public comment.
3.2.2 Selection of intervention level
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3.3 Prioritization of conservation interventions
3.3.1 Conservation situations
Critical and in need of emergency and/or stabilizing action
Serious and in need of Preventive Conservation
Ongoing and in need of Conservation Action
Conservation actions need to be prioritized at a complex site like Lahore Fort, to ensure
efficient and effective investment of time and money. Work needs to be carried out based
on a needs assessment of the severity of the conservation situation. As stated in the
The inevitable contradictions of
the planning process should be resolved first by examining the implications of all viable
alternatives, and then by deciding which is least harmful to the significance of the
heritage site.'
Severity is the relative relationship between inherent significance of the site in relation to
its current physical condition and the nature and extent of threats. The data needed to
carry out this measurement includes statements of significance for individual built
elements, regular monitoring reports and expert assessment.
Conservation situations are categorized as follows.
Element(s) of high cultural significance are in poor condition. This is
progressively worsening and there is imminent danger that qualities and
features forming the basis of significance will be lost. Immediate action is
required to substantially improve the situation, in both environmental and
conservation terms.
Elements of high or medium cultural significance are in poor condition. This
is progressively worsening and there is growing danger of damage to or loss
of those qualities and features that form the basis of significance. The problem
is serious and may have existed for a long time; however, short-term action
begun within the next six to 12 months and completed promptly will
significantly improve the situation.
Elements of high or medium cultural significance are in poor condition.
Although of a long-term nature, with elements remaining relatively stable,
there is a danger that this may eventually result in damage to or loss of those
qualities/features that form the basis of significance. Longer-term action, in
the form of studies, need to be started as soon as possible. Overall, the whole
process will take a long time before any improvement can be seen.
Management Guidelines for World Cultural Heritage Sites, '
8
a.
b.
c.
25
3.3.2 The aim of prioritisation
References
The aim of prioritization is three-fold:
a. to identify significant elements in each structure and in buildings as a whole,
which are in critical condition and require emergency action;
b. to identify serious situations, where progressive deterioration requires
preventive conservation action to be taken in the short-term;
c. to identify ongoing situations in need of study and longer-term
conservation planning.
Initial steps have been undertaken as part of the catalogues presented in Part 5 of
the Master Plan; individual elements and parts of buildings and buildings having
been identified as being in critical condition and requiring immediate action.
These sources will serve as the basis for planning and conservation at the site.
The Conservation Action Priority List in Part 6, section 6.9, lists those built
elements at the site that require priority conservation action. However, the
condition of historical resources does not remain static and it will be necessary to
update and amend this documentation at regular intervals through regular
monitoring.
Decisions as to what conservation action is required will need to be based on the
condition surveys included in the catalogue, along with research into past
interventions, maintenance (if any), and assessments generated through ongoing
monitoring of the resource. All decisions should be made in the context of
international best practice, set out in relevant charters and guidelines presented
in Annexure 10. They will also need to take into consideration the relative
significance of the resource and the nature and extent of the threats it faces.
1. UNESCO, Bangkok, 2004, Section 5.2
2. Fielden, Bernard and Jukka, Jokilehto,
ICCROM, Rome, 1993, p. 75
3. ibid., p. 14
4. Marshall, John,
1923, 1990 Edition, New Delhi: Asian Educational
Services, p. 9-10.
5. , op cit., Section 4.1.6.
6. , op cit., Article 3.1, p. 1.
7. See Master Plan References.
8. , op cit., p. 23
Draft Hoi An Protocols for Best Conservation Practice in Asia,
Management Guidelines for World Cultural Heritage Sites,
Conservation Manual: A Handbook for the Use of Archaeological Officers and Others
Entrusted with the Care of Ancient Monuments,
Draft Hoi An Protocols for Best Conservation Practice in Asia
The Burra Charter
Management Guidelines for World Cultural Heritage Sites
26
PART 4
Inventory of Heritage Resources
27
28
PART 4
INVENTORY OF HERITAGE RESOURCES
4.1 BACKGROUND TO THE METHODOLOGY
Comprehensive recording and documentation are fundamental to any programme
aiming to preserve the universal value and authenticity of a site like the Lahore Fort. The
Government of Punjab Lahore Fort Project entrusted the Heritage Foundation Pakistan
(HFP) with organizing, devising and directing a comprehensive heritage recording
system for the site. The HPF is also responsible for training associated personnel from the
Federal Department of Archaeology and Museums.
The recording methodology has been tailored to the requirements of the historic citadel.
As a critical activity within the conservation process, this needs to be comprehensive and
provide the necessary information for site's effective management.
Although records have been created over many years, they were not maintained in a
systematic or comprehensive way. As this is a project objective, it was essential to develop
a comprehensive recording system to provide a full record of the historic structures along
with baseline information. This led to the development of formats for preparing a
comprehensive conditions survey catalogue, as well as documentation catalogues for
gathering detailed information to assist in conservation, maintenance, management and
monitoring activities.
The recording systems developed by HFP comprises:
baseline survey folios (Annexure 6);
dossiers of histories of intervention (Annexure 7);
a condition survey catalogue (Annexure 8);
documentation catalogues (Annexure 9).
Graphic and photographic records provide the information necessary for planning
conservation and maintenance programmes. They are important for designing
interventions, and provide a basis for further studies. For this reason, establishing a
Project Documentation Centre (PDC) with properly trained personnel received the
highest priority. Set up in May 2003, the PDC is equipped with computers, photocopying
and printing machines and digital cameras. Extra computers, acquired in early 2004,
further improved the Centre's performance. Meanwhile, personnel originating from the
Survey Office of the Federal Department of Archaeology and Museums have been
trained to perform their roles effectively and efficiently.
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30
For ease of reference to historic assets, each structure is numbered according to a spatial
configuration that acknowledges the monument is a garden palace comprising linked
(or introverted quadrangle spaces). Figure 4.1 contains a site plan, showing
various structures and their numbering systems. The numbering system presented in
Table 4.1 is included as a reference in all documents, annexes and reports. For ease of
reference, Table 4.1 shows the numbering system for standing structures only.
The comprehensive system incorporates the following elements:
quadrangles and maidan;
buildings;
structures in ruins;
foundations;
basements.
1.1 Maidan-e-Diwan-e-Aam Mughal British
1.2 Diwan-e-Aam Mughal British
1.3 Daulay Khana-e-Khass-o-Aam Mughal Sikh / British
1.4 Kharrak Singh Haveli Mughal Sikh / British
1.5 Makatib Khana Mughal
2.1 Moti Masjid Quad Mugal British
2.2 Moti Masjid Mughal
2.3 Mai Jindan Haveli Mughal Sikh
2.4 Western Dalans Mughal Reconstruction
3.1 Jahangir's Quad Mughal Sikh / British
3.2 Janoobi Iwans Mughal
3.3 Mashriqui Iwans Mughal
3.4 Mashriqui Suite Mughal
3.5 Mashriqui Butj Mughal
3.6 Bangla Pavillion East Mughal
3.7 Jahangir's Khwabgah Mughal British
3.8 Maghribi West Burj Mughal
3.9 Maghribi West Suite Mughal British
3.10 Maghribi West Iwans Mughal Reconstruction
chahar- baghs
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No. Name of Structure Original Period Interventions
1. Diwan-e-Aam Quadrangle
2. Moti Masjid Quadrangle
3. Jahangir's Quadrangle
—
—
—
—
—
—
—
—
31
3.11 Zenana Hammam Mughal
4.1 Shah Jahan's Quad Mughal Sikh / British
4.2 Diwan-e-Khass Mughal
4.3 Kwabgah-e-ShahJahani Mughal Sikh / British
4.4 Hammam-e-Badhshahi Mughal
4.5 Arx Gah Mughal
5.1 Paien Bagh Quad Mughal Sikh / British
5.2 Imperial Zenana Mosque Mughal
5.3 Kala Burj Mughal
5.4 Khilwat Khana Mughal
5.5 Lal Burj Mughal
6.1 Hathi Reception Court Mughal
6.2 Sikh Temple Sikh
6.3 South Dalans Mughal
6.4 North Dalans Mughal
6.5 Gor Darwaza Mughal
7.1 Shah Burj Forecourt Mughal Sikh
7.2 Athdara Sikh
7.3 Shah Burj Quadrangle Mughal Sikh
7.4 Shsh Lahal North Face Mughal Sikh
7.5 East Sehdara Mughal Sikh Sikh
7.6 South Dalans Mughal Sikh
7.7 West Sehdara Pavillion South Mughal Sikh
7.8 Naulaka Pavillion Mughal Sikh
7.9 West Sehdara Pavillion North Mughal Sikh
8.1 Shah Burj Darwaza Mughal
8.2 Hathi Paon / Ghulam Gardish Mughal
9.1 West Pictured Wall Mughal
9.2 North Pictured Wall Mughal
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
—
4. Shah Jahan's Quadrangle
5. Paien Bagh Quadrangle
6. Hathi Reception Court
7. Shah Burj
8. Shah Burj Darwaza
9. Pictured Wall
32
10. Miscellaneous
11. Fortification Wall
4.2 BASELINE SURVEY FOLIOS
10.1 British Garages British —
10.2 British Bridge British
10.3 Barood Khana British
10.4 Imperial Kitchens Mughal
10.5 British Shed British
10.6 Akbari Darwaza Mughal
10.7 British Steps British
10.8 Alamgiri Darwaza Mughal
10.9 Postern Gate British
10.10 Curator Residencs British
11.1 East Fortification Wall Mughal
11.2 South Fortification Wall Mughal / British
11.3 West Fortification Wall Mughal /Sikh
11.4 North fortification Wall Sikh
Records developed through this process are designed to assist conservation professionals
and specialists carrying out research, and in management, analysis and maintenance
activities. Using accurate graphic, photographic and written data, they present the
configuration and condition of various historic assets.
Information about standing structures has been developed to varying levels of detail,
with records accordingly classified as detailed, medium and preliminary. For example,
the intricacy of decorative features at the Shah Burj, and the need for its immediate
conservation, meant recording it in detail. Shortages of time and personnel prevented
other standing structures being documented to the same extent. However, many are
documented to a medium level for example, Jahangir's quadrangle, for which plans,
elevations, section and preliminary schedules have been prepared. Other structures are
recorded at a preliminary level only, using plan footprints, as is the case with the Alamgiri
gateway. Recording work is, however, ongoing and those structures presently recorded
to medium or preliminary level will eventually be the subject of a detailed examination.
In phase two, the team will record the picture wall and basements to a detailed level. .
—
—
—
—
—
—
—
—
—
—
—
—
—
—
Table 4.1: Unique numbering system for Lahore Fort structures, showing their original period and any
subsequent interventions
Fig. 4.1 Map of Lahore Fort with building and structure reference numbers
33
The HFP format requires each primary, secondary and decorative element to have a
dedicated number, marked on the relevant measured drawing. Schedules, which are
prepared for each structure, provide information regarding every element: its number,
location, description, dimensions and condition, along with numbered photographs and
period of intervention details, if known.
Thousands of pages of schedules have been supplemented with detailed measured
drawings (plans, sections and elevations), along with numbers for each element.
Documentation folios have also been compiled; for each room, in the case of the Shah
Burj, or each structure, subject to the complexity and extent of the decorative features. As
a first step, documentation folios are being finalized for standing monuments.
The detailed and comprehensive framework developed for the Lahore Fort meets the
following objectives.
a. A regimen of accurate and precise documentation has been instilled, essential for
proper conservation work.
b. Effective recording techniques and documentation system provide a
comprehensive framework for recording a historic structure as complex and ornate
as the Lahore Fort.
c. The PDC has guidelines for forming teams to work at other heritage sites.
d. The team is able to properly share records and documentation. Through
computerization and digitalisation, they can widely disseminate soft copies of all
records.
Baseline survey folios are in Annexure. 6.
Before undertaking any conservation work, it is important to develop an understanding
of past interventions. The British Archaeological Survey began recording interventions,
after taking over from the British military authorities. Work carried out after
Independence was also recorded as it was done. Most of the intervention record reports
are in the Library of the Federal Department of Archaeology at Lahore Fort.
A research cell, created within the Project Office to collect all relevant material relating to
all structures at site, is now organising this in line with the Heritage Foundation's format.
Several volumes of
have been prepared. They carry excerpts from all reports and printed documents that
have been located. For ease of reference, each dossier contains an index for the excerpts
found in it. The front page of each report, document or publication precedes the excerpts
to allow accurate notation when documents are referenced.
4.3 HISTORY OF INTERVENTION DOSSIERS
Dossiers of Historical Accounts and Records of Interventions to Lahore Fort
34
Although most of the present excerpts are from pre and post-Independence
Archaeological Survey reports, in future the intention is to add excerpts from other
sources. In addition to being a source for conservation work, scholars and historians will
also be able to use these.
The dossier format ensures that all reference material relating to alterations made in each
structure is easily accessible, facilitating the planning of conservation work. It also allows
dossiers to expand to include any additional material, including future interventions.
These dossiers, along with baseline survey folios, are indispensable tools for conservation
managers.
The histories of intervention dossiers are in Annexure 7.
Preliminary information concerning the condition of each element is included in the
baseline survey folio. This is useful in assessing conservation needs of an element at a
detailed level. To develop comprehensive conservation strategies, broader information
about primary, secondary and decorative elements is required. Since the Master Plan
aims to provide sufficient information to support the work of the Government of the
Punjab Department of Archaeology, a room-by-room condition survey was developed,
along with an assessment of areas of critical concern.
The survey systematically examines each structure and its subdivisions, recording the
condition of material in each subdivision. The survey covers the following elements:
roofs, ceilings, walls, columns, flooring, decorative features and miscellaneous items.
In addition to information recorded under each heading, a condition summary based on
field notes is also attached. This information is based on visual examination, not a
detailed study. However, this will have been carefully compiled and, by assessing
condition for the first time, it will provide comparative baseline information about the
condition of standing structures. The basements and picture wall have not yet been
examined in the case of the former, because they mostly inaccessible and in the latter case
because of difficulties posed by its great length and height. In future, an expanded and
updated catalogue will cover the above structures and other areas not covered in the
present study.
Although information is based solely on visual assessments, it is a valuable source; it will
assist conservation managers in developing proposals for preventative maintenance, or
commissioning in-depth studies for conservation work.
The Condition Survey Catalogues are in Annexure 8.
4.4 CONDITION SURVEY CATALOGUES
35
4.5 DOCUMENTATION CATALOGUES
4.6 RECORDING ACTIVITY BEFORE, DURING, AFTER
The documentation catalogues have been specifically developed to help identify
priorities for conservation work, and in maintenance and monitoring. The HFP format
consists of a comprehensive two-page form for each structure. They provide easily
accessible summary information, comprising:
a. graphic and photographic information, consisting of location on the site plan, plan
footprint and a general view;
b. written information consisting of name, location, classification of category, status,
accessibility and present use, ownership, representation in existing surveys,
description of condition, its period and a statement of significance;
c. bibliographical references, dossier references, condition survey and baseline
survey folio references, descriptions, brief histories and dates of known
interventions;
d. checkpoints for monitoring and maintenance schedules, remedial measures
required and approximate costs.
These comprehensive catalogues will be useful tools when developing strategies or
undertaking conservation work. Information about remedial measures emergency,
stabilization, preventative maintenance and conservation requirements has been
developed through visual examination and is of a preliminary nature. However, they do
not provide information about the condition of various structures on a comparative scale,
as every structure will have been visually evaluated in the condition survey catalogues.
The documentation catalogues will also assist the Department to prioritize work when
funding is available. Other work for example, stabilization, preventative maintenance
and conservation can be scheduled according to the severity of the problem.
The documentation catalogues are in Annexure 9.
By developing an inventory of historic sources, the Department is now well equipped to
undertake all conservation work in a systematic and logical fashion. For the first time a
holistic picture of existing conditions exists, providing conservation managers with the
information to ensure that funding is used in the most effective manner to preserve this
World Heritage site. Table 4.2 summarizes the recording system and shows ways in
which each part can be used in planning conservation work at the Lahore Fort.
The Master Plan envisages that all future interventions will be carried out in accordance
with agreed and defined principles and guidelines. The re-hanging of the Shish Mahal
ceiling is an example of how best-practice conservation work should be done, with
36
37
excellent and systematic workmanship following procedures which were properly
recorded.
It is important that Article 16 of the Venice Charter is followed in letter and spirit, in
requiring that there should be 'Precise documentation in the form of analytical and
critical reports, illustrated with drawings and photographs.'
With the baseline graphic and photographic information now available, it is critical that,
as conservation work proceeds, it is not just interventions that are recorded but the
discussion and planning process too. Reports need to be prepared for all works and made
part of the history of intervention dossiers. This will ensure that future custodians fully
understand work currently being done as part of this Master Plan.
Baseline Survey To assist conservation managersFolios in planning maintenance and of
conservation and preparingdetailed works proposals
schedules
Dossiers of
conservation structure
Condition Survey To assist conservation managers
Documentation To provide detailed 2-page
structure at a glance; to be usedin particular for settingconservation and maintenancepriorities and maintenance and recommen-
dation for remedial action neededwith indicative costs.
1
Document Aim of the Document Summary of Contents
Detailed recording of each elementevery building/structure; graphic
records including plans, elevations,sections, photos and preliminary
To serve as a reference for Copies of all reports, publicationsHistories of conservation managers in and documents describing pastInterventions planning maintenance and interventions to each building/
Details of materials and conditionCatalogue in developing proposals for of all primary, secondary and
preventive maintenance or decorative elements of each part ofconservation work every building/structure
Plan and photo; name, location,Catalogue summaries of each building/ classification, status, use, condition
and significance; cross references toother documents; history and date ifknown; checkpoints for monitoring
Table 4.2 Summary of documentation and recording system
References
1. (The 'Venice Charter'),
adopted at the Second International Congress of Restoration, Venice 25-31 May 1964. Padova, Italy,
ICOMOS.
International Charter for the Conservation and Restoration of Monuments and Sites,
38
PART 5
Current Context and Issues
39
40
PART 5
CURRENT CONTEXT AND ISSUES
5.1 SITE MANAGEMENT ISSUES
5.1.1 Custodianship and oversight
In mid-2004, the Government of the Punjab Department of Archaeology took over
site management and administration; ownership, however, remains with the
Federal Ministry of Culture.
The Provincial and Lahore City Governments were not previously involved in the
administration of heritage sites, as this was a Federal Government responsibility.
The resulting lack of coordination meant that Provincial and City Governments
did not feel compelled to provide any assistance in protecting the monument.
This was an unsatisfactory situation; not least, because the City is responsible for
the site's immediate environment, including traffic movement, rubbish removal
and preventing illegal building encroachments.
The official tourist authorities, the Pakistan Tourism Development Corporation
(PTDC) and Tourism Development Corporation of Punjab, play no role in
managing or directly promoting tourism at the site. They provide no input on
display and use of the site for visitor enjoyment and education. Although the site
forms part of the tour itineraries promoted by both organizations, they do not
conduct special tours or provide special promotional material. Local tour
operators are also not involved in any campaigns to promote the site, nor do they
provide guides or arrange any special activities or events.
The lack of a coordinated strategic approach to cultural heritage management has
encouraged ad hoc decision-making, resource allocation and conservation
practice. Managers of Lahore Fort often have to make decisions with few
guidelines, procedures and systems. The competence of cultural heritage
managers is part of the problem, as their qualifications and practical experience
may not properly equip them for their roles. In addition, they do not have the
resources or support to implement standard conservation methodologies and
link these to a strategic plan.
There is no regular inspection of the systems and work of the site management by
any external agency. What needs to be done, how it is to be done and whether it is
of an acceptable international standard, are decisions taken entirely by the
41
Department itself. Although the World Heritage Committee provides clear
guidelines for maintaining and managing World Heritage sites, they have done
little to ensure that they followed.
In December 2002, Pakistan submitted its six-year to the World
Heritage Committee on legislative and administrative provisions and other
actions taken for the application of the World Heritage Convention. This
included the state of conservation of its World Heritage properties. In addition,
there have been several visits by international consultants to the heritage site.
However, these visits have been short and their mandate did not include
checking conservation procedures. They were also conducted in the company of
department officials, who are unlikely to point out actions that might not conform
to World Heritage guidelines. By not looking closely into procedures,
international consultants' visits provide reassurance and tacit confirmation of the
status quo. Unfortunately, these visits may also have been used to justify and
sanctify unacceptable work.
As discussed in section 2.3, the 1975 Federal Antiquities Act provides various
forms of legal protection to support the preservation and best-practice
management of the fort. However, in almost every case there has been a failure to
take advantage of this and the site suffers as a result.
Although the Act stipulates that the Federal Government will constitute an
Advisory Committee (Clause 3), this committee does not appear to exist.
Clause 18 of the Act is clear about the use that the protected monument or site
may be put to. However, the spirit and letter of this clause are not enforced
when permission is given for events to be held at the site.
In spite of the stringent fines and punishments laid out in Clause 19 for wilful
damage to a monument, the Department has not been able to use these to
protect structures from graffiti and other forms of vandalism. There are
insufficient guards patrolling the site and the Department does not have the
magistrate's powers necessary for their enforcement.
Clause 22 requires that 'no development plan or scheme or new construction
on, or within a distance of two hundred feet of a protected immovable
antiquity shall be undertaken or executed except with the approval of the
Director General.'
However, since such a clause is not incorporated in Building Bye-laws or
Urban Planning Bye-laws of the Acts governing city development, Clause 22
Periodic Report1
2
5.1.2 Enforcement of legal protection
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has been contravened in almost all cases, unless the department had the
foresight to acquire the land in the buffer zone. There is no local and provincial
government legislation related to development that protects the 200-foot
buffer zone around the site from encroachment, garbage, road works and the
resulting damage to the site's integrity.
Clause 23 (i) prohibiting direct attachment of any item on or near a protected
monument is regularly and systematically contravened. Unless this clause
also becomes part of local government legislation, the citadel will continue to
suffer from electricity poles and cables, handbills posting and other intrusions
on the fortification walls. Despite the threat of imprisonment and fines, the
Department's inability to act is obvious from a tour of the citadel's walls.
One hundred and ten personnel are employed at Lahore Fort, comprising:
two junior archaeologists (Curator and Assistant Curator);
Analysis of existing staff composition shows that watch and ward staff are the
highest priority, with garden staff being the second priority and conservation
staff the last priority. As a result, there is a serious shortage of specialist expertise
in the wide range of skills needed to carry out the conservation and maintenance
of a World Heritage site.
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5.1.3 Staffing
a junior engineer (Conservation Assistant);
a junior gardener (Garden Assistant);
two supervisors and two foremen;
a clerk;
a khalasi;
an electrician;
a sikligar;
an engraver;
a kashigar (tile worker) and a mistry (bricklayer);
six tube well drivers and helpers;
four museum attendants;
30 watch and ward staff;
35 gardeners and bhishtis;
13 labourers and seven sweepers.
43
Because the Federal Department of Archaeology has not engaged experts for
specialist advice, staff have to rely on sources within the Department.
Consequently, they are unable to get timely advice necessary for proper
execution of works. Those managing the site often find themselves in the difficult
position of having to choose between what they know to be the correct
conservation decision and what is demanded of them politically.
The conservation and maintenance teams are visibly under-equipped and have
work with outdated and inefficient tools. This includes equipment needed for
maintenance, conservation, laboratory facilities and documentation. The existing
PIATR materials laboratory lacks equipment, and much of what it does have is
unused because team members do not know how to operate it.
5.1.4 Training
5.1.5 Past Master Plans
The Pakistan Institute for Archaeological Training and Research was established
to train professional conservation staff, to serve as a materials laboratory and to
teach specific building crafts needed for conservation of Pakistan's World
Heritage monuments. It has facilities at Lahore Fort and some equipment.
However, it has become inactive and urgently needs revamping and
strengthening with more staff, improved buildings, equipment, research
facilities and a curriculum focus.
The UNESCO report on recommended
that the institute be reorganised as the Pakistan Conservation Institute. Although
various institutions in Lahore teach architecture, including the National College
of Arts and University of Engineering and Technology, none offers a degree
course in conservation theory and principles or traditional building methods and
building crafts. The only conservation course available in Pakistan is run by the
NED University of Engineering and Technology, Karachi.
Since much protected heritage consists of standing monuments, it is essential to
provide conservation training to architects and engineers. The lack of sufficient
technical expertise within the Department is one of the key causes of
inappropriate conservation work. By working with architectural and engineering
schools to institute conservation courses, the Department will become stronger
by being able to induct technical personnel familiar with conservation issues and
able to oversee the work needed to safeguard heritage assets.
The first Lahore Fort Master Plan was prepared in 1973 and included
conservation and restoration of all the site's important areas. Work continued
Cultural Tourism in Lahore and Peshawar3
4
44
until 1985, exceeding original cost estimates but completing only 25 per cent of
the proposed work. No detailed report is available. A Technical Committee was
convened to assess the situation in 1985; it proposed concentrating restoration
efforts on several individual buildings. Development schemes were
subsequently prepared for work in specific areas of the site. These are listed
below, with comments on their status in parenthesis.
a. (Revised in 1991,
planned completion date 1997; report missing. Extent of works carried out
uncertain; work suspended.).
b. (Began in 1981-82,
most work appears to have been completed; report missing.)
c. (Approved in 1992,
work begun before revision in 1994 rescheduled completion for 1997. Revised
again in 2002, with a completion date of 2006. No report; not clear what work
has been carried out; work continuing.)
d.
(Approved in 1992-93, revised 1997. Work scheduled for completion in 2005-
6. No report available.)
e.
(Prepared 1997-98; to be finished 1999-2000. No report. Technical Committee
review and censure in 1997. Work scheduled for completion in 2004-5 is
suspended.)
f.
(Part of a bigger programme under control of a special committee. No
record.)
A specialist report, the
, highlights a number of fundamental problems, characteristic of these
past conservation plans (the full report is in Annex 1). Its findings are
summarized here.
The conservation of monuments or archaeological sites requires special expertise
to cope with unexpected findings, their interpretation and treatment. Too often, a
contractor appointed through the government tender system does not have these
skills and uses inappropriate tools and methods on historic fabric. The existing
contract system has resulted in a great deal of sub-standard conservation work,
and irreversible loss of integrity to historic monuments.
Scheme for the Preservation and Restoration of Shish Mahal.
Scheme for Restoration and Preservation of Eastern Dalans.
Scheme for the Preservation and Restoration of Western Dalans.
Scheme for the Preservation and Restoration of Basement Chambers of Shish Mahal.
Scheme for Preservation and Restoration of Diwan-e-Aam and Diwan-e-Khass.
Scheme for Preservation and restoration and Face Lifting of Southern Fortification
Wall.
History of Conservation Approaches and Interventions at
Lahore Fort
45
Previous schemes have taken the form of PC-1 documents. These are designed to
serve as applications for government funds for specific works, giving a brief
background of proposed works and quotations for workforce and materials. The
PC-1 normally provides only general information on civil works items. Schemes
prepared on a PC-1 pro forma do not require detailed justification for proposed
works; consequently, the information given on the pro forma fails to provide
details about location and measurements of an item of work and is no substitute
for a full and detailed report.
The lack of detailed work specifications in the PC-1 pro forma leaves the use of
funds and decisions about treatment of historic fabric mostly to the discretion of
the site supervisor. Much of the unfortunate and unnecessary intervention in
evidence is probably due to these discretionary powers allowed under the
present system.
Almost all of the schemes were revised, sometimes repeatedly; in most cases,
because funds were not provided in accordance with the phasing envisaged in the
scheme. Consequently, none have been completed on time. The planning of new
schemes whilst previous ones are still in progress has also created problems for
the department's staff, as the increased workload is not matched with additional
staff. The result is that normal maintenance and repairs are abandoned, with
buildings not included the new scheme suffering further neglect.
In the past, the Federal Ministry of Culture annually allocated funding for Lahore
Fort. However, the sum allocated was always grossly inadequate. The
preservation budget, in addition to staff salaries, falls into two categories: funds
for 'Annual Repairs and Maintenance' and funds for 'Special Repairs'. Recently,
the Government of Pakistan has also provided funds from its development
budget; funding also augmented by the international community in a few
instances. The site generates around 3.8 million Pakistani Rupees from ticket sales
each year, in addition to an unspecified though substantial amount generated
from fees charged for special events and commercial use by film-makers. Yet, it
has received an annual average of less than 650,000 Pakistani Rupees for regular
repairs, maintenance and development. Even after including the money received
for 'special repairs' over the last ten years, the site has given more to the
government than it has received.
A number of bureaucratic obstacles had to be overcome before Federal Ministry
funds could be spent on the site. Information about the National Budget,
5.1.6 Funding procedures
46
announced in June, takes several months to reach the Department and its regional
offices. Amounts are then allocated to various monuments. Gaining access to this
money is also a lengthy and bureaucratic process. The Director has the power to
spend up to only 25,000 Pakistani Rupees. For sums beyond this, detailed
conservation plans and budget estimates in the form of 'Conservation Notes' are
prepared for the approval of the Director General/Ministry a process that can
only be completed by the end of November or early December, when half the
fiscal year has already passed. A budget estimate then passes between offices
until all objections and queries are settled, a process that can take several more
months. Consequently, the earliest that approval can be received is often the
middle or end of April. This leaves only two months before the end of the
financial year, during which the Department has to implement of all the work.
Inevitably, there is pressure to finish work quickly. Hasty execution and
dependence on 'replacement and reconstruction' for quick results rather than
painstaking preventive conservation, can be directly attributed to this system for
the release of funding.
Additional funding comes from charges for events held at the citadel and from
rent paid by the canteen and other concessions. Government of Norway funding
of the Project for the Conservation and Preservation of Lahore Fort has made a
substantial contribution towards conservation, documentation and future
management of the site. In future, the Government of the Punjab will need to
provide further funding.
There is no mechanism presently in place to attract contributions in kind, in the
form of materials or expertise. This is a large, untapped resource base. There is
also no formal procedure for acknowledging contributions made by public,
corporate or individual sponsors. High profile recognition of contributions
would help encourage more donors to give towards the maintenance and
management of the site.
Issue 1: The need for a structured, multi stakeholder management system to guide
conservation and management
Issue 2: The need for a broader based and more efficient funding approach
Issue 3: The unexploited potential for contributions in kind
Issue 4: The lack of an acknowledgment mechanism to encourage donors
Issue 5: The need for an informed management team to implement the Master Plan
Issue 6: The lack of focused training in conservation and management
47
Issue 7: The need to identify basic job skills for all levels of staff
Issue 8: The need for a clear definition of job scope for all levels of staff
Issue 9: The need to integrate a variety of management tools into the system
Issue 10: Isolation of the site custodians and lack of international and regional support
Conservation efforts at Lahore Fort have been characterized by lack of
comprehensive planning based on accurate needs assessments and international
standards. The custodians of the monuments have followed an outdated
conservation manual, written in 1923 by Sir John Marshall. Decisions to conserve
have often been made arbitrarily, without reference to need or assessment of
priorities.
As a result, the recent approach to 'conservation' has tended towards:
reactive conservation without assessment of need and a clear statement of
priorities;
partial or full reconstruction of structures on the basis of insufficient research
and without clear identification of 'new' versus 'original'.
Archaeological excavations at Lahore Fort show that it is the last of thirteen
cultural layers, with the earliest dating from 2,200 years ago . This sequence of
occupations has created a mound of soil and mud brick that has not fully settled
and does not drain properly. Consequently, there are continuous problems at the
site with settlement of the structure's foundations and underground chambers.
There is no proper dispersal of water; dampness therefore rises through the brick
Table 5.1 Site management issues
5.2 CONSERVATION ISSUES
5.2.1 Overall conservation approach
5.2.2 Prioritizing critical conservation issues
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refurbishment without adequate historical research, done by unskilled
workers;
dealing with surface appearances, without addressing serious structural
issues;
carrying out interventions without proper study or preparation beforehand;
replacing faded or slightly damaged original elements with new copies in
similar materials;
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5
48
walls, causing fracturing and disintegration. Leakage from old terracotta water
pipe systems throughout the Fort further aggravates this problem.
The Twenty-third Session of the World Heritage Committee, meeting in 1999,
acknowledged that the Shish Mahal, a decorated palace built in 163132 by
Emperor Shah Jahan, was of critical concern. Water leakage during the 1999
monsoon season had exacerbated the damage to the exquisite mirrored ceiling.
At the recommendation of Sir Bernard Fielden, the ICCROM consultant,
temporary roofing was installed. Investigation of the roof also revealed that
termite damage to the beams, although arrested by previous treatments, had left
them weakened. The wooden strip and gutch framework, to which the ceiling
mirror work is attached, was also sagging dangerously due to vibration and
deterioration. Subsequent major works consolidated and strengthened the
roofing system, conserving the decorative features of the ceiling.
Other critical conservation issues at Lahore Fort are as follows.
i.
Rising damp in walls in underground chambers due to lack of damp
proofing and lack of surface water drainage from adjacent areas.
ii.
Seepage of water due to insufficient storm water drainage and
defective waterproofing.
Termite attacks on wooden members.
iii
Lack of protection from excessive traffic and inadequate storm water
drainage.
iv.
Spalling, structural cracks, deterioration of stone surface, marble
'cancer' in the Moti Masjid and Diwan-e-Khass, due to excessive
pollution.
i.
Cracks, predominantly in top and bottom architraves and spalling of
edges.
ii.
Structural cracks, damaged portions due to displacement and
disintegration due to exposed condition.
a.
b.
Primary elements
Secondary elements
Walls
Roofs
Floors
Columns, bases, capitals, brackets, lintels fabricated from stone
Stone and marble architraves
Stone and marble fretwork screens
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49
iii.
Displacement, damage and opening of joints.
iv.
Disintegration of bricks and loss of mortar.
i.
In fragile condition, due to inadequate protection from natural
elements and visitors' graffiti - examples include the fresco in the
lower part of the picture wall and the upper portions of the
(triple doorway) in Jahangir's quadrangle.
ii.
Spalling of corners, discolouration and staining from inserted metal
bolts.
iii.
In fragile condition, due to inadequate protection from natural
elements and, particularly on the northern side, excessive pollution.
iv.
Disintegration due to marble 'cancer', loss of top veneer, spalling and
discolouration due to excessive pollution.
v.
Loss due to dampness, which destroys the bond between the base and
mirror; disintegration of the in lower parts, due to wilful
damage by visitors.
vi.
Loss caused by wilful damage - examples include the Shish Mahal
Aiwan column bases during Sikh and British periods and damage in
Naulakha Pavilion caused by visitors.
Another important issue is the treatment of open areas within quadrangles and
other open spaces. The present pattern of grass lawns and trees, most of which are
not original, date from the British period. Detailed historical analysis into the past
treatment of these areas is required, to determine whether they conform to the
Mughal pattern of quads and open spaces. In the interim, it is important to
reassess their viability as water seepage from lawns and shrub and tree roots are
visibly damaging adjacent structures, foundations and archaeological remains.
It is important to address all of these conservation issues in order of priority, not in
a random fashion and that priorities are determined through complete and
thorough review of the conservation status of all of the site's built elements.
Stone or marble overhanging eaves (or chajjas)
Brick overhanging eaves ( chajjas)
Frescos
seh dara
Marble or stone dado (izara)
Kashi kari (tile mosaic)
Marble facing
Mirrorwork and manabbat kari
manabbat kari
Pietra dura
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�
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c. Decorative features
50
5.2.3 Procedures for implementing conservation work
5.2.4 Documentation
The Department is undertaking conservation work at the site without sufficiently
standardized procedures. There is a need to clearly identify the steps required, in
order to ensure that subsequent work is justifiable, carefully planned and
implemented.
At present, there is little reference to the many international guidelines, manuals
and case studies available. Work in other parts of the sub-continent, Southeast
Asia and elsewhere would provide useful models and new ideas and approaches.
The PDC needs to have a well-stocked library of texts, articles, reports and access
to on-line references.
Full documentation of a World heritage site is a fundamental requirement. This
includes maps, plans, architectural details, photographs, film and text.
Custodians also record, in detail, every intervention into the site's fabric and
form, documenting it a series of 'before and after' presentations.
A UNESCO report on highlighted the
need for such baseline documentation at Lahore Fort - a need addressed, in part,
by the ongoing project by creating a Project Documentation Centre at the site in
May 2003, under the guidance of the HFP. Although the site had a drawing office
producing surveys and drawings for work done at the site, there was no system
for systematically documenting these. This resulted in haphazard and unrelated
activity, driven by immediate needs or requirements determined by officials. The
old drawing office had only manual equipment; a few sets of plan presses for
storing drawings, basic survey equipment and some rudimentary furniture.
To assess the importance of existing documentation for future conservation work,
a small Project Documentation Centre was established. It is equipped with three
computers, including a laptop, a photocopying machine and a flatbed scanner
with related hardware and software. It also has printing equipment for drawings
and documents, along with a digital camera. The PIATR have provided a
dedicated room for the PDC. Systematic work began, using drawings and
schedules specially developed for the Lahore Fort by the HFP and their unique
numbering system for each element, ranging from primary and secondary, to
decorative features. Given the complexity of the site structures, particularly of the
Shish Mahal, the HFP documentation procedure ensures that the specially
devised schedules cover all aspects of each item. This includes preliminary
condition and dates of intervention, along with photographic recording.
Cultural Tourism in Lahore and Peshawar6
51
Before it could begin operating, the PDC team required training; only two of the
team, for example, knew how to use a computer (a requirement for all team
members). From May 2003, the team started carrying out important work that has
formed the basis of subsequent conservation activity. In 2004, additional
computers and photographic equipment further boosted PDC facilities.
The record consists of the following items.
i. A British period map dating from the 1880s, based on an earlier Sikh
period map. It does not appear to be based on a physical survey of the site
and carries no levels.
ii. A Department of Archaeology map prepared during 1970s, which took
into consideration the site conditions. However, it is not based on a
physical survey of the whole site and carries no levels.
There are several basic plans, sections and elevations of various structures,
prepared during the British period and dating from the early twentieth
century. The drawings also show additions to Mughal structures, built to
serve the British cantonment.
i. Archival photographs dating to late nineteenth and early twentieth
centuries; the photographs, however, are not dated.
ii. Post-1947 photographs of restoration/conservation works.
i. Archaeological Survey and Department of Archaeology reports, showing
interventions made over time.
To carry out systematic documentation that is easily retrievable, the HFP devised
an inter-related numbering system. This provides a number for each structure as
well as its primary, secondary and decorative elements.
The following work comprised phase one of the PDC programme (2003-04).
a. A topographical survey plan of the Lahore Fort, providing the traverse,
location and footprints of all buildings, structures and spaces, along with
gradients and spot levels.
b. Detailed graphic and photographic documentation of the Shah Burj,
including the Shish Mahal - essential, given the ongoing conservation work in
a. Site Plan
b. Basic Drawings
c. Photographs
d. Reports
52
this and related structures.
c. Preliminary graphic and photographic documentation of all other structures
in the Lahore Fort, comprising floor plans of structures bordering the various
quadrangles. These will be incorporated into the topographical survey map.
d. Preparation of dossiers for each identified quadrangle/ building/ structure,
based on information extracted from various Federal Department of
Archaeology reports.
The existing laboratory facilities comprise a tile workshop and a lime laboratory,
both directly associated with Lahore Fort, as well as the Central Archaeological
Laboratory, which is a national facility of the Federal Department of
Archaeology. The tile workshop and lime laboratory produce materials for use in
restoration projects within the site. The Central Archaeological Laboratory deals
with conservation of artefacts, including ceramics, coins, paper and tile.
Several of the 10 members of staff have relevant qualifications and some specific
skills. However, there have been no opportunities for further training or
upgrading of skills.
Set up in the 1960s and 1970s, the laboratories have received little or no upgrading
since in terms of equipment and materials. All of the equipment and machinery is
outdated and most no longer works - or if it does, no one knows how to use it.
An adequately equipped laboratory is therefore essential - one capable of
handling the monitoring, maintenance and conservation requirements of a
World Heritage site. In addition to up-to-date equipment and materials,
upgrading the facility also means properly staffing it with appropriately trained
personnel. The scope of its work also needs to be clearly defined and prioritized.
A large volume of architectural material has accumulated in various parts of the
site. This is neither in inventoried storage nor on display. This valuable material is
therefore unavailable for study or use in conservation, and is at risk because it is
not under curatorial care. Most of it is material removed from various elements
during restoration and reconstruction projects. There is a need to determine the
original locations of these elements and if possible replace the facsimile with the
original. All other material should be curated.
5.2.5 Conservation laboratory
5.2.6 Archaeological repository
53
5.2.7 Skilled artisans in traditional building crafts
Conservation work at Lahore Fort requires a skilled workforce of artisans trained
in traditional building crafts. Previously, a large number were trained whilst they
carried out restoration and spent a lifetime working on the monuments under the
Department's control. There were many opportunities to learn, since replacement
and replication were then acceptable 'conservation' practices. As funding became
scarce, artisans' posts were abolished and those formerly employed by the
Department's took up other kinds of work. The long-standing tradition of master
- apprentice training broke down. As a result, there is a serious shortage of young
people training in and entering these trades.
In the limited cases where replacement and reconstruction occurs, work is let out
to contractors who may or may not be able to employ the best artisans available.
Whilst there may be a case for occasionally using contractors for specialized or
specific tasks, the practice should be strictly discouraged for conservation work.
There is ample evidence of unsatisfactory work by contractors that has been
detrimental to the historic structures. This practice of awarding work to
contractors, while trained artisans decrease in number, is the main cause of
unsatisfactory work. Without adequate supervision, sympathetic conservation
and restoration work is impossible.
Building a resource collection of building crafts, comprising examples of all
materials, art forms and styles, would greatly assist in the conservation of Mughal
architecture. This would serve as a design reference for staff training and to
produce items for sale, based on historic motifs and materials in the collection.
Issue 11: The many critical conservation situations which need to be addressed and the
lack of set priorities for addressing them
Issue 12: The need for an updated, professional overall approach to planning and
implementing conservation in keeping with international standards and
guidelines
Issue 13: The importance of a detailed and standardized documentation system
Issue 14: The urgent need for a reorganized, focused and upgraded conservation
laboratory
Issue 15: The need for a centralized system for storage of architectural fragments,
material samples, artifacts etc. with computerized inventory
Issue 16: The need for re-installation of original building elements
Issue 17: The lack of publications and other resources on conservation issues
54
Issue 18: The shortage of trained skilled artisans in traditional building crafts to carry out
conservation work
Issue 19: The need for a resource collection of building crafts for conservation work and
for product design
Issue 20: The importance of in-house execution of conservation works rather than
reliance on outside contractors
There is no comprehensive and systematic monitoring of building condition or
maintenance of structures at Lahore Fort. The current situation is described in
Annexure 2,
. This is largely due to staffing limitations. There is, for example, only
one Assistant Archaeological Engineer to maintain and monitor all the
monuments in the care of the Northern Circle. At the site, one Archaeological
Conservator and three members of staff are responsible for all specialist
maintenance. The wide range of professional expertise needed to safeguard such
a large and complex monument is lacking, with inevitable results.
Routine maintenance is based on verbal instruction; systematic records are kept
only in exceptional circumstances. Separate systems do not exist to monitor the
condition of the monuments and implement required maintenance. There is only
one team doing this, with no system of cross-checking and certification. In
addition, no specific research or site investigations are carried out in advance of
conservation and maintenance interventions.
In the past, the Federal Ministry of Culture, Sports, Youth Affairs and Tourism
monitored conservation work done by the Federal Department of Archaeology
on approved master plan or development schemes using PC-IV and PM-I pro
formas. Designed for use on new work, these pro formas, which are still used, are
unsuitable for monitoring conservation work because they do not provide
adequate baseline information about the buildings and interventions.
This is highly unsatisfactory because the lack of baseline information and absence
of an efficient reporting and monitoring system creates a situation where the
decision to follow accepted conservation principles is left to the discretion of
Table 5.2 List of conservation issues
Management and Monitoring Systems for Conservation and Preservation
of Lahore Fort
5.3 MONITORING AND MAINTENANCE ISSUES
5.3.1 Routine monitoring and maintenance
5.3.2 Monitoring of conservation works
55
those actually executing the work. Given that the quality and expertise of those
executing work varies enormously, careful and systematic monitoring is
critically important.
There are a number of areas with ruins and structural remains at or just above
ground level at the site. At present, there is no specific protection or maintenance
of these remains and they are subject to damage by the elements and people
walking and climbing on them. Fabric and built elements are being dislodged and
eroded. Continued damage of this kind will result in the loss of important
archaeological evidence.
Over several decades, the department has concentrated on conservation and
restoration and paid insufficient attention to the basic cleaning of historic
structures. Federal Department custodians could recall only one instance, when
the Naulakha Pavilion was cleaned with Sepiolite, and that was several decades
ago.
Grime, fungi and deposits of chemicals have accumulated on all surfaces,
resulting in damage to an extent that remains undetermined. The failure to clean
these may have due to a misapprehension; that this would remove a protective
patina that had formed on these surfaces, and was therefore neither a desirable
nor an essential part of a maintenance programme. It may also have been due to
lack of staff to undertake such work. Whatever the reasons, the result is that
today, from a distance, the Lahore Fort appears a desolate, derelict and unkempt
site; the opposite of the glorious image it should present.
Cleaning is important, and not solely for appearance. It is not possible to make
informed decisions about the maintenance and conservation of monuments
when they are covered in filth. Regular cleaning is a necessary first step in the
conservation process.
Another source of damage is the dampness caused by watering plants in close
proximity to structures. In the case of the foundations of the , on the
perimeter of the Maidan-e-Diwan-Aam, shrubs planted in the area enclosed by
the foundations of cell walls are regularly watered. This damages the remains.
5.3.3 Maintenance of ruins and archaeological remains
5.3.4 Cleaning of monuments
5.3.5 Damage from watering of plants
dalans
56
Issue 21: The lack of regular and systematic monitoring of the site
Issue 22: The lack of regular maintenance of the site, based on need
Issue 23: The need for a system to monitor conservation works carried out by the
department and under department supervision
Issue 24: The need for an approach to the maintenance of ruins and ground level
archaeological remains
Issue 25: the general filth of the monuments and need for regular cleaning,
Issue 26: The need for a review of the planting regimen in view of damage being caused
to remains / structures / foundations
The current state of knowledge and research at the Lahore Fort is characterized by
a lack of focus and breadth. No formal research programme is presently in place
at the site, although various initiatives have begun as part of the Government of
the Punjab's Project for the Conservation and Preservation of Lahore Fort.
To develop a greater understanding of the Lahore Fort and its context, plan and
configuration, it is important to develop the means to allow scholars to continue
interpreting its historical layers. Historical data and information generated
through research will enable an authentic presentation of the site to visitors by
bringing the Mughal era to life through its association with the different quarters
and quadrangles.
Many questions remain unanswered, due to lack of systematic and sustained
research in past decades. Translations of material available in English provide
insufficient information about the citadel's buildings, incremental additions to
these and use of various quarters. Only a few contemporary historians' accounts
have been translated from Persian into English or Urdu, and there is a great need
to develop other source material in Persian located in many libraries in Lahore
and elsewhere. In the past, there was little emphasis on research within the
Department itself; in spite of housing one of the finest antiquarian libraries, there
are not even bibliographies of source material.
The present Government of the Punjab Project for the Conservation and
Preservation of Lahore Fort started to address this need in 200304, by compiling
Table 5.3 Monitoring and maintenance issues
5.4 RESEARCH AND PUBLICATION
5.4.1 Overall situation
57
dossiers in the HFP format to provide source material on interventions.
A proposed Pakistan Conservation Institute would also contain cells to address
these needs. Meanwhile, some of the components are already in place in a nascent
form as part of the present Government of the Punjab Project for the Conservation
and Preservation of Lahore Fort. The various components now need organizing,
and the additional funds sought to make them fully functional and able to inter-
relate with other components. These will then provide the necessary information
and background to conservators and researchers, as well as enabling those
presenting various aspects of the Fort to do this in an authentic fashion.
At present, there is no publication policy or strategy and very little material about
the site has been produced. The Archaeological Reports contain some; however,
given the importance of the site, there needs be a constant flow of information; of
not only work undertaken but also in-depth studies and research based on
historical records. Publications need to be available in both print and electronic
soft copy for the widest possible dissemination.
In 1959, a major excavation examined the stratigraphy of the mound on which the
site is located. An area, 180 feet by 60 feet in the southeast portion of the Maidan,
was excavated to a maximum depth of 50 feet. The continuous series of twenty
cultural levels recorded date from the British period, through to pre-Mughal
deposits. The Mughal levels revealed multiple layers of intensive and large-scale
building activity. Below a seven-foot layer of debris and fallen mud brick
indicating disturbance, a clearance revealed a 12 foot-high wall of mud bricks
possibly representing the non-Muslim mud brick fort recorded as having been
sacked by Mahmood of Ghazni during his sub-continental campaigns.
No other archaeological investigations have take place, with the exception of
incidental excavations associated with conservation works.
The present Library is a valuable research resource. It contains some rare
publications dating from the eighteenth century, along with various
archaeological survey reports dating from nineteenth century. In spite of being
one of the best antiquarian libraries in Pakistan, it lacks adequate resources and
equipment. There are not even funds for binding antiquarian volumes; there is
7
8
5.4.2 Publication
5.4.3 Archaeological research
5.4.4 Library
58
insufficient and unsatisfactory storage equipment; the furniture is old and
dilapidated; and there is no modern equipment except a single computer donated
by UNESCO in 2004. The manual index makes it difficult to locate research
material.
Lack of control over book issuing is a major problem. All Department officers are
entitled to borrow books from the library; many have not bothered to return the
rare ones issued to them and many important publications and documents are
now missing. Furthermore, the illustrations have been stolen from most of the
library's remaining antiquarian books.
A great deal of information in the form of archival maps and antiquarian
photographs is housed in the Lahore Fort. However, material is presently
scattered, un-catalogued and inadequately stored. This non-availability of
information is a great obstacle to publication or conservation research. A full
inventory of material is therefore required to improve ease of retrieval. Archival
material also needs to be stored in an acid-free environment.
Issue 27: The lack of research and a research focus to induce scholars to undertake studies
regarding various aspects of the Qila
Issue 28: The need of a publication policy or programme to generate basic, reliable data
Issue 29: The need for archaeological research.
Issue 30: The need to upgrade the library at the site; enlarging the collection, equipment,
hardware and library software
Issue 31: The need to store and catalogue archival material located at the site
Table 5.4 Research issues
Many visitors to Lahore Fort are largely unaware of the impact of their behaviour
on the site. Some have inflicted a great deal of damage to original elements
through graffiti on fresco work and other surfaces, some of which is irretrievable.
Involuntary damage also occurs through treading on original pavements,
climbing over walls and touching fragile decoration.
5.4.5 Archival material
5.5.1 Threats from uncontrolled visitation
5.5 SITE VISITATION
59
Details of visitation to Lahore Fort are contained in Annexure 3,
. Gate statistics reveal that in the peak month of March, up to
135,000 visitors enter the site; the lowest level is in the winter months (December
and January). The largest numbers of visitors are concentrated into 10 or 11 public
holidays, when as many as 35 to 40,000 people enter the site on a single day. It is
doubtful whether such levels are sustainable at a World Heritage site, even one
much better equipped, staffed and managed than the Lahore Fort. Most visitors
come in groups of from four to 20 or 30 people, with men far outnumbering
women. The majority of visitors belong to low and middle-income groups and
arrive by public transport. The literacy level of most visitors is low.
Visitors follow undesignated routes, with most interest shown in the Maidan-e-
Diwan-e-Aam and the interior of the Shish Mahal, as well as the Hazuri Bagh and
Badshahi Mosque outside the citadel. Large portions of the site within the citadel
are never visited. This is not surprising, as signs only exist in popular areas.
Few activities or events are organized at the site, except for the free Karavan
Pakistan events held for the first time in 2004. Other events are often for a select
few invited dignitaries and guests, rather than the public as a whole.
The visitors' main interest does not appear to be the historical aspects of the site,
but in using it for recreational purposes. There is little understanding of the
monument's history and, accordingly, a general disregard for proper behaviour
and treatment of the site as an important national monument. This is aggravated
by a lack of creative signage, tours and sources of information for the visitor.
Ensuring that visitors understand the significance of the site must be one of the
main aims of the Master Plan and the overall approach to presentation.
Some fragile areas of the site are at immediate risk from inappropriate visitor use
and numbers. Emergency measures are needed to curtail damage while an
overall policy for visitation and visitor control is put in place.
At present, there is no means to protect the monuments from visitor damage
except by cordoning off certain areas and restricting access. Additional, indirect
means education, information and persuasion - need to be developed and
combined with direct methods. Where necessary, protective measures can range
from complete closure of areas, to temporary barriers and increased numbers of
guards.
Visitor
Management Plan
5.5.2 Emergency protection of fragile elements
60
5.5.3 Estimating visitor capacity
5.5.4 Interpretation and education
Visitor numbers, particularly the huge surges in public holidays, are far greater
than certain areas of the site can accommodate. In addition to damaging fragile
parts of the monument, this scale and pattern of visitation also compromises the
quality of the cultural experience. Determining optimum visitor capacity is
challenging because it means identifying the exact level beyond which negative
impacts, particularly involuntary damage, becomes evident. However, tracking
these impacts through a monitoring programme will at least provide the basis for
setting approximate estimates of capacity. It will also help in designing measures
to mitigate damage, particularly to fragile areas likely to suffer from excessive
visitation.
Nov. 1999 72,977 3,785 4,500 81,262
Dec. 25,294 7,35 3,150 29,179
Jan. 2000 74,132 3,989 2,300 80,421
Feb. 77,790 2,860 3,350 84,000
Mar. 124,209 5,667 4,500 134,376
Apr. 97,263 3,820 4,360 105,443
May 78,773 3,525 4,150 86,448
June 66,873 4,179 38,000 109,052
July 95,967 5,372 36,000 137,339
Aug. 87,158 5,435 32,000 124,593
Sept. 57,406 1,849 28,000 87,225
Oct. 70,495 2,419 10,315 83,229
There is no comprehensive policy on interpreting and presenting the site, except
for a few boards erected in recent years. While an interpretative gallery would be
effective source of information, there are also low-cost solutions to educating
visitors. At present, these economical alternatives are lacking and need to be
developed. They include proper signage, leaflets, and informed guards and local
guides who can provide educational information to visitors in simple language.
Month Adults Children Students Total
TOTAL 928,337 43,625 170,625 1,142,597
1999
2000
2000
2000
2000
2000
2000
2000
2000
2000
Table 5.5: Visitor numbers from November 1999 to October 2000
61
There is also no educational material in local languages - Urdu, Punjabi, Pashto
and Seraiki - and few knowledgeable local guides available at a rate most visitors
can afford.
There are two museums at the site; the Fort Museum, located in Jahangir's
Khwabgah, in Jahangir's quadrangle, and the Sikh Gallery housed in the
(house) of Mai Jindan. Both display some rare items; the Sikh Gallery is a
particularly valuable but under-exploited resource for developing an
understanding of the period when the Sikhs used the citadel as their base.
Although both museums are a great source of curiosity to visitors, present
standards of presentation are unlikely to satisfy this.
The following issues need addressing:
there is no inventory of the paintings and artefacts housed in museums;
placed in front of alcoves with exhibits on their rear walls, a
considerable distance from the viewer;
exhibited without environmental controls.
There are many visits by schools, especially during the cooler weather when
constant streams of large parties visit different parts of the site. The citadel
appears to draw more school parties than any other any monument in Pakistan,
and therefore needs to offer a wide variety of activities to provide children with a
means of interaction. At present, school groups, including the teachers, tend to
5.5.5 Museum displays
5.5.6 Young visitors
haveli
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there is no printed brochure or other material available for information to
visitors;
display cases, designed and installed through a Japanese initiative in the
1980s, are
the glass surfaces of display cases are dirty;
the lighting system is inadequate;
exhibit black cloths are faded, torn and dirty;
the labels at the bottom of displays provide almost no information;
the labels are on faded and discoloured paper;
all galleries are dirty and in need of redecoration;
information panels in place in the Fort Museum are not being used;
valuable paper exhibits, including manuscripts, miniatures and paintings, are
�
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62
play ball games and leave mounds of fruit peel. However, such groups are
amenable to advice and with a little effort can become champions for
safeguarding heritage structures. While sensitizing the general public about the
value of the historic site may appear a daunting task, schools as organized groups
can easily be provided with information which will foster a greater
understanding of the site and the behaviour expected while visiting.
In the past, no facility has existed within the Lahore Fort for liaison between the
site administrators and the local community to involve them in its safeguarding.
Residents of Lahore, and particularly the nearby areas, have had no involvement
in caring for, interpreting or investing in the site.
Similarly, there are no programmes to engage women or other sectors of the
community in safeguarding the site and developing a 'duty of care'. Ways to
involve large numbers of people need to be put in place, so that every visitor
becomes aware of his or her responsibility in safeguarding the historic
environment.
The present outreach programme, run by Karavan Pakistan, encourages the
involvement of schools in activities related to the site, as highlighted above.
However, there is a great need to re-establish links between the Lahore Fort and
its surrounding community through the youth and women of the walled city.
This will not only recreate the lost relationship between the citadel and the
community, but also promote income-generating activity that benefits the local
community.
The Government of the Punjab Project for the Conservation and Preservation of
Lahore Fort is taking steps in this direction; employing eight women of the site's
housing colony on a half-day basis to clean site structures. The women are direct
beneficiaries of the heritage conservation project, which has greatly improved
their economic condition.
At present, the PDC is also acting as a proxy Karavan Pakistan office at the site.
Because of the success of these recent events, and a vocal and visible expression of
interest from the local community to be involved in the future of their heritage, a
dedicated officer has been assigned to run a community outreach office at the site
as part of the present project. However, to make this initiative fully effective it is
important to develop a Community and Youth Outreach Cell (CYOC) as part of
site management.
5.5.7 Community outreach
63
5.5.8 Restoration of historical access and links
5.5.9 Tourist facilities
5.5.10 Community craft production
At present, public access to the Lahore Fort is from the Alamgiri gateway; a ramp
entering through the British postern gate and Shahjahani Hathi Pol provides
vehicular access. The British built the ramp for easy movement of troops and
equipment while the original Akbari gateway remained closed to the public. This
controlled entry to the British cantonment, established in the Lahore Fort after the
annexation of the Punjab. When the cantonment subsequently moved out of the
site, its southern periphery was opened out; the creation of a large area of
ceremonial steps there made for ease of surveillance and control. After
Independence, this British period access route was maintained.
Studies for the UNESCO report on and
those carried out by the HFP, support the proposal that the original access from
the walled city through Akbari gateway be opened to re-establish the historic link
between the Lahore Fort and the walled city. This is important because it would
revitalize the original Shahi route, providing access directly from the walled city's
Delhi Gate to the Lahore Fort. Access to the walled city would become easier, with
the diverse activities and ambience of the historic core heightening the site
visitor's cultural experience whilst economically benefitting the community as a
whole.
At present, visitor facilities are generally either insufficient, as is the case with the
provision of toilets, or are inappropriately located - examples include car parking
in Hazuri Bagh and the canteen and shops in Dalan-e-Sang-e-Surkh. Other
facilities and services are poorly designed and intrusive in the context of the site,
including the drinking fountains, ticket booth and limited signage.
There are no centres providing information about the site and its historical
significance and no organized educational activities, particularly for the many
visiting school children. Visitors are starved for information; when a new sign is
put up, it is read by almost everyone. Activities, such as the UNESCO craft
workshops in the Shah Burj, draw in people who are eager to talk with and learn
from the participants. This is something that to be taken advantage of and
developed.
There is a need to encourage women in the community around the Lahore Fort to
make cultural products using the designs found in the monument's various
structures. Planned first steps towards this involve encouraging women of site's
Cultural Tourism in Lahore and Peshawar,
9
64
housing colony making handicrafts items for sale. These products will need an
outlet: one that enables the women to sell directly. In collaboration with the PDC,
the CYOC can provide facsimiles of designs and other information to help in the
production of craft products.
The Lahore Fort is used for special events, usually for fund-raising when large
numbers of elite are entertained while the site is closed to the public; sometimes
for several days at a time. These events often involve food preparation,
installation of lighting and sound systems, opening of fragile parts of the site to
visitors and, occasionally, horses and fireworks. Although staging of theatrical
events can bring vitality to the site and can be a valuable interpretive tool, there
have to be restrictions on its indiscriminate use and guidelines for staging of
events.
Similarly, plans to re-use historic buildings for tourism need to ensure that any
modifications to meet contemporary requirements are appropriate and properly
carried out. There are many instances where modern utilities and conveniences
have been installed without due care for original fabric and materials, resulting in
long-term damage to structures.
Issue 32: The need for emergency measures to protect fragile areas of the Qila which are
being damaged by uncontrolled numbers of visitors and use of direct and
indirect methods for controlling large numbers of visitors
Issue 33: The need for assessment of the carrying capacity of the site
Issue 34: Inadequate information about and interpretation of the Fort to visitors; the need
for a comprehensive interpretive policy; the need to relocate visitor services and
amenities to minimize impacts on the historic site
Issue 35: The poor condition of the Museums and the sub-standard quality of displays
and presentation
Issue 36: The need to address a lack of understanding and the feeling of ownership and
commitment within the community, particularly youth
Issue 37: The need to recreate links with the Walled City and re-open original access
routes to the site
Issue 38: The need for guidelines on the use of areas of the site for special events
Issue 39: The need for standards and methodologies to guide adaptation of historical
buildings for modern tourism use
5.5.11 Use of historical buildings and areas for events
Table 5.6 Site visitation issues
65
5.6 ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE ISSUES
5.6.1 Overall situation
5.6.2 Environment in the areas surrounding the site
a. Vehicle movement and resulting pollution
Environmental conditions in and around the site are a threat to its preservation
and integrity. Details about existing conditions are in the
Annexure 4. Key issues include the impact from
roads encircling the site, problems with drainage and solid waste removal,
parking, access and electricity. The overall situation is aggravated by a lack of
coordination between city authorities, responsible for infrastructure and
services, provincial authorities, responsible for strategic planning in the area, and
site management. This lack of integrated urban planning has led to the site being
isolated from planning initiatives for its immediate environs. The result is a
continual worsening of the environmental problems that adversely affect its
structural fabric and fragile decorative elements.
Lahore Fort is surrounded on all sides by roads: the Grand Trunk or Circular
Road on the north side, Fort Road on the east and south sides and minor access
roads such as Hospital Road to the west. The present approach to the site is
from the heavily congested Circular Road, via a narrow roadway opposite
Iqbal Park. Parking is available for a limited number of vehicles in Hazuri
Bagh.
Traffic on Circular Road is the greatest source of pollution. This road is also
used for parking vehicles, in the lane adjacent to the northern periphery of the
site. This contributes to the accumulation of garbage and wastewater. The
movement of heavy traffic causes excessive vibration, detrimental to the
stability of the historic structures. It is also generates high levels of noise.
Vehicle emissions from traffic and the nearby bus terminus are another source
of pollution. The most pervasive problem is the suspended particulates in
these emissions, which cause soiling of the buildings. Nitrogen dioxide
seriously affects colours and materials, as do other emission-borne pollutants
like ozone and hydrogen sulphide that bleach the colours of frescoes and alter
pigmentation. This is a particular threat to the picture wall.
The fumes and dust created by the high volume of traffic along the northern
periphery of the site have also caused encrustation and corrosion. Proposed
re-routing of most heavy vehicular traffic away from the site along the new
Ravi Link Road will help in alleviating the problem. However, the main
Environmental and
Physical Infrastructure Study,
66
polluters smaller vehicles and motor rickshaws need to be banned from this
road; it should be open only to vehicles running on compressed natural gas
(GNG).
The Federal Antiquities Act requires a 200-foot buffer zone to be maintained
around major cultural heritage sites. Many of the environmental problems
facing the Lahore Fort today are a direct result of the failure to enforce this. In
reality, there is no buffer zone in place; the result of a lack of coordination
between the Federal Department of Archaeology and the local
administration, and determined effort by all concerned parties.
Encroachments into this buffer zone include major roads (the Grand Trunk
and Fort Roads) light industry, a rim market, car, bus and truck parks, utilities
and a garbage collection site. Areas of potential green belt, including Ali Park
to the south of Fort Road and the area between the citadel wall and the Grand
Trunk Road on the northern side of the site, are poorly maintained and
rubbish-filled. Failure to maintain and enforce the buffer zone poses a number
of potentially serious threats to the condition of the site, some of which are
already evident. These include:
i. the impact of pollution, dust and vibration caused by heavy traffic,
mentioned above;
ii. encroachment of light industry in the buffer zones, resulting in air
pollution and the dumping of garbage and industrial waste;
iii. the use of Ali Park, in particular, as a dump for solid waste from the walled
city, with two large containers for waste collection and numerous adjacent
dumps of debris;
iv. the use of this park by drug addicts, who contribute to its untidy, garbage-
filled state;
v. the lack of visitor's toilets at the Lahore Fort and Hazuri Bagh, resulting in
open areas being used as public facilities;
vi. defacement and damage to the citadel's walls, through graffiti, the pasting
of posters, removal of building materials and direct attachment of high
voltage cables and transformers;
vii. the above factors all contribute to the general appearance of dereliction in
the areas surrounding the Lahore Fort, presenting an extremely negative
image of Pakistan's premier World Heritage site; an image that does not
inculcate pride and a sense of proprietorship within the local community.
b. Encroachment in the environs of the Lahore Fort
10
67
c. Integrated urban context
5.6.3 Physical infrastructure of the site
a. Sewerage and storm drainage systems
Situated in the centre of Lahore and surrounded by dense urban
development, the site is subject to the adverse consequences of encirclement
by busy roads, factories, threatening encroachments and inappropriate urban
land use. Failure to enforce the buffer zone exacerbates this; a no-man's-land
of unauthorized structures and activities, it provides no protection to the site.
Success in addressing the external environmental issues that affect the site
will determine the effectiveness of its preservation. Its future is integrally
linked to issues of population growth, housing and traffic control and routing
in adjacent city areas. The site is presently a lacuna in urban land use and
zoning plans, with no recognition of the need to use planning tools to protect
it and to maximize its potential in generating cultural tourism.
The proposed upgrading and control of the fort's environs will create a zone
with high land values and development potential. Developing this area for
cultural tourism associated with the site will inevitably lead to opportunities
for income generation within the local community, particularly in the walled
city. Clear guidelines need to specify what types of tourism and culturally
related development are acceptable in the area around the site, in order to
ensure its protection and maintain a suitable buffer zone and setting. Cultural
heritage impact assessments are useful tools for evaluating development
proposals and their potential impact on historical fabric, intangible cultural
heritage and the cultural integrity of the site and the neighbouring walled city.
The staff colony's existing sanitation system discharges wastewater into a
common open drain that ends at the site's north wall. This wastewater then
falls for 50 feet across the wall's surface. The colony's toilet facilities are
minimal; they are unlit, in extremely poor condition and without flushing
arrangements. Waste enters a septic tank and then an open drain, which
discharges it onto the brick embankment wall near the picture wall. The staff
colony's substandard drainage, sewerage and solid waste disposal systems
are a source of many problems at the site, as well as for colony residents.
There are 55 public toilet facilities at the site, of which only 21 are available for
use. Most of the site's 'functioning' facilities either leak, causing structural and
decorative damage, or do not flush.
Storm water has caused serious damage in the southwestern part of the site, in
the area of the administration offices and PIATR hostel. Saturation of infill
68
dating from the British period, on which these structures stand, has caused
settlement and major structural damage to buildings.
Along the citadel's north wall, near the picture wall, there are number of storm
water outlet spouts on the wall, believed to be either Sikh or British additions.
The strong winds that often accompany heavy rain blow water from these
down the wall's decorated surface. Rising damp also affects this area of the
wall.
It is difficult to determine original drainage levels, gradients and courses. This
information has not been recorded when new floors have been subsequently
laid (and re-laid) in many areas of the site. It also likely that many of the
original falls were even reversed, compounding the drainage problem.
This lack of documentation about the historical drainage system hampers
comprehensive drainage planning. Although the present Government of
Punjab Lahore Fort Project has mapped some of the internal drainage lines, a
lot more still need investigating.
The site's water supply comes from two tube wells. In addition to providing
water used to maintain the gardens and lawns, they also supply the offices,
staff colony, outside road vendors and public lavatories at the site. One is
located on the site's southwest side, across the road from Ali Park; the other is
in the northeast corner, in the nursery area. Both function adequately but
inefficiently, due to the age and condition of the pumps. Pipes, valves and
hydrants are in a state of disrepair, as are the leaking and overflowing
overhead tanks.
The site management has not maintained water pipes and those supplying the
rest house bathroom and the west suite of Jahangir's quadrangle have
continued to leak for years, with disastrous results for the original structure.
These leaks are still awaiting repair. A hydrant in the western section of
Maidan-e-Diwan-e-Aam continues to leak, creating a constant puddle of
water; it, similarly, continues to await attention.
The worst example of this kind of damage to historic structures is in the
northern chambers, caused by water leaking from ablution taps. Although
they were finally blocked, it was only after severe damage to the chambers
and a crack appearing in the Moti Masjid's northern wall. An unchecked leak
in a first floor toilet pipe was also responsible for cracks appearing in the
library building (one of the southern suites of Jahangir's quadrangle) and the
Kharrak Singh Haveli.
b. Water supply and distribution
69
c.
d.
Solid Waste
Electrical systems and lighting
An average 34000 visitors per day to the site, along with up to 200 employees
and the families of 40 of these, generate solid waste. Trimmings, leaves and
clippings from garden maintenance supplement this. This produces an
average of two to three tons of solid waste per week, depending on the season
and whether any demolition or construction works are in progress. Seventy to
eighty per cent of this waste is biodegradable; the rest is recyclable paper,
plastic, glass and metal or construction materials.
Organic waste is buried for later use as compost. Other waste either goes into
bins or is stored in open heaps. Sweepers empty the bins weekly, using fabric
sheets to transfer waste into a collection vehicle. Some recyclable material is
removed, but abandoned building material often remains in piles on site for
long periods. Wells are also used for dumping solid waste, contaminating
ground water.
Perhaps the biggest issue is the large amount of rubbish thrown on the lawns
and in other open spaces by visitors. This is not discouraged; though there are
rubbish bins in prominent locations, visitors rarely use them. Site custodians
appear to accept the throwing of rubbish around the site; this has to then be
picked up. This is an unsatisfactory state of affairs: if people were encouraged
to use bins, there would be less picking to do. Janitors regularly clean the
grounds, although waste is allowed to accumulate in less well-visited areas.
The current electrical distribution system comprises five transformers located
on site, of which four are active and the fifth used occasionally. All main cables
into the site terminate at distribution boxes attached to the four corners of the
monument. An additional overhead cable enters on the southeast side of
Jahangir's quadrangle, the site's old office area.
Brackets, installed by the Water and Power Development Agency (WAPDA)
to support overhead main cables, are severely damaging the citadel's walls.
These cables need re-routing to permit removal of brackets from the eastern
and northern fortification walls. The distribution network is satisfactory apart
from the distribution boxes, all of which are in poor condition and incapable
of carrying any additional load.
There is very little illumination in and around Lahore Fort, for either security
or recreational purposes. The only interior lighting comes from recently
installed floodlights, located at the Alamgiri Gate main entrance and in
Jahangir's quadrangle. Any proposed illumination must enhance the overall
70
cultural experience, not just the recreational activities of evening visitors. Its
installation and operation must not compromise the integrity of the historic
structures.
The existing security system relies on manual monitoring of the site by
Department of Archaeology guards, assisted by the recently installed
floodlights mentioned above. The system is inefficient because there are
insufficient guards and no system of accountability. Security in the museums
on site is also inadequate, and a number of thefts have taken place in recent
years. Although more guards are required, site staff also need greater powers
to stop any destructive activities.
Issue 40: The need to assess alternative parking locations
Issue 41: The need to reduce heavy traffic in the environs of the site, and resulting
emissions.
Issue 42: The need to remove offenders and upgrade the environment and ensure that
controls are put in place to maintain standards within the buffer zone
Issue 43: Setting up formal links at city government level to ensure that conservation and
planning for Lahore Fort is carried out within an Integrated Urban Planning
Context
Issue 44: The need to establish Cultural Heritage Impact Assessment procedures
Issue 45: The need to identify where uncontrolled water is damaging the monuments and
find ways to control and reroute, including the removal of all toilets from
historic structures
Issue 46: The provision of better toilet facilities which do not adversely impact on the site
Issue 47: Control of garbage deposition and a more efficient removal system along with
Karavan “No-Litter” motivational and educational campaigns
Issue 48: Removal of electrical facilities, cables and wiring which is directly impacting on
monuments; design of a sympathetic illumination system for night time use of
the site
Issue 49: The need for improvement in lighting for evening use
Issue 50: Upgrading security at Lahore Fort in general and specifically in the museums
e. Security
Table 5.7 Environmental and physical infrastructure issues
71
5.7 STRENGTHS, WEAKNESSES, OPPORTUNITIES AND THREATS (SWOT)
SITUATIONAL ANALYSIS OF THE Lahore Fort WORLD HERITAGE SITE
A complex array of strengths, weaknesses, opportunities and threats influences the
future preservation and management of the Lahore Fort. The site is, without question, of
extreme cultural significance to Lahore, Pakistan and the world. There is a high level of
visitor interest in the site, even though the monuments are in poor to critical condition
and visitors are offered virtually nothing in the form of interpretation or facilities. It is
clear that the site's present vulnerability, and the accumulated dangers to it, threaten to
overwhelm and negate its strengths. This is mainly due to a consistent failure in the past
to maximize strengths, and create or take advantage of opportunities for developing the
site's potential.
This situation is now changing because of the Government of the Punjab Project for the
Conservation and Preservation of Lahore Fort. Implementation of an international
standard documentation programme, creation of specialist crafts workshops and
research cell, staging of community events at the site and formation of a community
outreach cell all mark a substantial shift in approach in the right direction. These activities
also form the initial phase in the restructuring of the hitherto dormant PIATR as a new
and expanded Pakistan Conservation Institute.
A fundamental change in the approach to conservation is also taking place because of the
involvement of national and international experts in emergency action to save the Shish
Mahal's mirrored ceiling. In conjunction with discussions regarding the contents of the
Master Plan, this programme is prompting radical rethinking on issues regarding
appropriate levels of intervention and the protection of the authenticity of heritage
resources.
References
1.
p. 94-7.
2. Federal Antiquities Act 1975 (Act VII of 1976).
3. UNESCO, , Islamabad, 2003.
4. Khan, Muhammad Ishtiaq, West Pakistan Circle,
1973 (unpublished).
5. see , No.1, 1964: p.55-6
6. , op. cit., p.
7. ibid., p.
8. , op. cit., 55-6
9. , op. cit., p.
10. Federal Antiquities Act 1975, op. cit., Clause 22.
State of Conservation of the World Heritage Properties in the Asia-Pacific Region, Pakistan: Fort and
Shalamar Gardens in Lahore,
Cultural Tourism in Lahore and Peshawar
Master Plan: Lahore Fort Preservation and Restoration,
Pakistan Archaeology
Cultural Tourism in Lahore and Peshawar
Pakistan Archaeology
Cultural Tourism in Lahore and Peshawar
72
73
Strengths Weaknesses
Opportunities Threats
— High cultural significance as reflected
by World Heritage status
visitors reflected in visitor numbers
Centre, workshops and other initiatives
involvement in conservation of Shish
Mahal
Dormant status of PIATR
Lack of a comprehensive vision of
conservation
associated higher profile at national level
educational and performance venue
with the Walled City & its monuments
Community
and local women for production of
women's crafts to spread tourism
benefits to local community
— Poor state of conservation and
maintenance of all parts of the site
— Popularity with local and national — Inadequate documentation
— Lack of on-going research
— Setting up of Project Documentation — Problematic management and funding
procedures
— National and international expert — Insufficient trained staff
— Failure to integrate Lahore Fort into
city planning and administrative
— Close proximity of the historic urban systems
Core and community of Lahore — Lack of community involvement in
walled City custodianship of the site
— Preparation of the Lahore Fort Master — Lack of economic benefits to the
Plan community from Qila tourism
—
—
— NORAD-UNESCO-GOP project and — Established conservation approach
— Insufficient custodial care
— Controlled use of the site as an — Environmental issues in and around
the site
— Research potential of the site — Uncontrolled and uninformed
— Creation of cultural tourism linkages visitation
— Continuing degradation of the Buffer
— Associated economic benefits for local Zone due to lack of provincial and city
level cooperation
— Revival of PIATR as PCI — Lack of trained personnel
— Availability of local youth as guides — Insufficient allocation and delayed
release of funds
Table 5.8 SWOT situational analysis at Lahore Fort World Heritage site
74
PART 6
Programme for Action
75
76
PART 6
PROGRAMME FOR ACTION
6.1 INTRODUCTION
This section of the Master Plan presents a series of integrated action plans developed
from expert input and designed to address the issues highlighted in the previous parts of
the Plan. These actions constitute the key processes of cultural resource management at
Lahore Fort, the aim of which is to achieve the vision set out for the future of the site in
both the short and longer term.
In the short-term or first three years:
identify historical buildings and features in need of emergency action and
design and implement first aid measures;
citadel's conservation and management;
making in a context of national and international standards of best
practice;
to formulate new approaches to solving problems requiring new
partnerships and initiatives;
conservation management;
displays in place and provide maps, brochures and other sources of visitor
information;
authentic information;
6.1.1 Short-term vision
�
take all steps necessary to arrest further degradation of the monument;
put in place standard operating procedures for basic tasks carried out as part
of the
engage a wide range of stakeholders in decision-making, framing this
decision
tackle environmental issues that can be addressed using existing means and
start
put in place monitoring and maintenance systems as the basis of sound
set a design standard for information display and signage, put basic, first-step
create a mechanism for on-going community and youth outreach;
create a framework for continuing research to form the basis of presentation of
develop the means for ensuring that the grounds are well looked after and
clean.
�
�
�
�
�
�
�
�
�
' - '
77
6.1.2 Longer-term vision
In the longer term:
the site, in order to preserve its cultural significance and
authenticity;
understand the history and significance of the site in its
contemporary context.
The following simplified model (Figure 6.1), adapted from
shows the
process of cultural resource management proposed for the site.
In this model, heritage conservation and management follow a sequence of key
processes starting with the identification and assessment of heritage resources.
This follows through into maintenance, conservation, infrastructure
development, research and public presentation of the site. There is a continuous
feedback loop between each of the key processes and the strategic management
process. Strategic management is a major process in itself that includes the
organizational planning cycle and its links with external agencies.
The Programme for Action reviews the issues presented in Part 3 of the Master
Plan. It defines the overall approach, framing issues as objectives and actions
required to meet these. Table 6.1 shows the correlation between the issues raised
in Part 3 and the action plan objectives presented below. It also recommends
specific operational tools to assist in implementing proposed actions.
Each Action Plan is summarized below and, where relevant, fully appended in
Annexes 2 to 4. Located at the end of this section, the Lahore Fort
ObjectivesAction Plan 2006 2012 (Tables 6.49) presents each of the Action Plan
objectives; its level of priority, target date for implementation, identification of
milestones and responsible agents, and resources needed.
achieve the highest standard of conservation for all remaining historical
elements of
develop a holistic, efficient and practicable management strategy for the site;
upgrade the environment in and around the site;
enhance visitor enjoyment and understanding of the citadel, with further
research to
�
�
�
�
Best Practice in Cultural
Heritage Management. Best Practice in Cultural Heritage Management,1
78
Figure 6.1: Model of cultural resource management
6.2 SITE MANAGEMENT STRATEGY
The role of the site management is 'to conserve the heritage resource and to serve the
public interest, provided this is not detrimental to the site.' An effective management
structure, mechanisms and tools must be in place to allow the team to administer in as
informed and efficient a manner as possible. To meet this objective, a proposed site
management strategy will integrate conservation, training and sustainable management
tools into a system of consultation. The intention is to assist the site's custodians in
efficiently manage it.
2
SiteManagement
Strategy
Resource Inventoryand Assessment
Visitation Plan
Monitoringand
MaintenanceProgrammes
ResearchConservation
Strategy
Environment andPhysical Infrastructure
Plan
79
80
SITE MANAGEMENT
Issues Objectives
CONSERVATION ISSUES
1. Need for an integrated SMS 1 Proposed Management Structure:
management system Site Commission + Technical
Committee + Management Team
2. Need for diversified funding SMS 2 Diversified Funding Scheme
approach
3. No way to accommodate SMS 3 Proposal for Friends of Lahore Fort
contributions in kind
4. Lack of ways to acknowledge SMS 4 Recommendations to be implemented
contributions through Friends of Lahore Fort
5. Uninformed management team SMS 5 PowerPoint workshops
6. Lack of training in conservation SMS 6 Pakistan Conservation Institute
and related subjects
7. Basic job skills unidentified SMS 7 Core Competency training programme
8. Scope of jobs not well defined SMS 8 Standard Operating Procedures
9. Management tools under-utilized SMS 9 Logical Framework Analysis, UNESCO
Heritage Audits, Risk Assessment and
Management and Geographic
Information Systems (GIS)
10. International and regional SMS 10 Recommendations for linkages and
support network lacking networking
11. No set of priorities for carrying COS 1 Conservation Action Priority Table
out conservation
12. Need for set procedures for COS 2 Step by step procedures for
planning and carrying out implementation of Conservation
conservation work work
13. Standardized documentation COS 3 Continuation of the existing Project
Documentation Centre; Heritage
Foundation formats for Baseline
Survey Folios, History of Intervention
Dossiers, Condition Surveys and
Documentation Catalogues
14. Inadequate lab support for COS 4 Proposals for Conservation
conservation Laboratory
15. Scattered and un-inventoried COS 5 Proposals for a centralized Materials
architectural material Repository
81
16. Original elements unused COS 6 Proposals for the reinstallation of built
elements
17. Lack of conservation library COS 7 Proposals for a Conservation Resource
Library
18. Shortage of skilled crafts people/ COS 8 Architectural Crafts Training
artisans Programme
19. Need for a craft resource COS 9 Proposals for a Craft Resource
collection Collection
20. Employment of unskilled COS 10 Development of in house conservation
contractors capabilities
21. Lack of regular and systematic MM 1 Monitoring System
monitoring of the site
22. Lack of regular maintenance MM 2 Maintenance System
based on need
23. Conservation work carried out MM 3 Proposals for monitoring of
with inadequate supervision conservation work
24. Ruins and above ground MM 4 Proposals for the protection of
archaeological remains archaeological remains
degrading and at risk
25. General filth of monuments MM 5 Systematic cleaning programme
26. Damage from planting and MM 6 Review of Plantation
watering regimen
27. Lack of research and a research REF 1 Outline of a Research Framework
strategy
28. Lack of publications of data REF 2 Lahore Fort Publication Programme
and material
29. Lack of archaeological research REF 3 Programme of Archaeological
Investigations
30. Poor condition of the library REF 4 Proposals for Library Upgrading
31. Archival material at risk REF 5 Proposals for Archival Collection
32. Unprotected fragile areas VIP 1 Emergency Protection Plan
and uncontrolled crowds
33. No idea of appropriate VIP 1 Recommendations for Carrying
visitation levels Capacity study
MONITORING AND MAINTENANCE
RESEARCH
SITE VISITATION
82
34. Lack of interpretation for visitors VIP 2 Recommendations for an Interpretive
Policy
35. Poor state of museums VIP 3 Museum upgrade proposal
36. Need for community outreach VIP 4 Community Outreach Office
37. Severed historical links with VIP 5 Recommendations for Consultant
Walled City Study of Links with the Walled City
38. Inappropriately located visitor VIP 6 Recommendations for relocation of the
services and amenities canteen and other visitor services
39. Damage from uncontrolled VIP 7 Recommendations for Historical Site
events and uses on site and 8 Use Guidelines and Adaptive Re-use
of historical buildings
40. Uncontrolled parking in EPI 1 Proposals for the revitalization of the
environs of the site Buffer Zone
41. Parking issues and entry into EPI 2 Recommendations for parking
the site arrangements and change of site entry
42. Impacts of heavy traffic around EPI 3 Phased approach to traffic rerouting
the site and pedestrianization
43. Failure of communications EPI 4 Recommendations for an Integrated
between site & city on planning Urban Conservation Planning and
and management issues Land Use Study
44. No controls over development EPI 5 Cultural Heritage Impact Assessments
in the environs of the site
45. Damage to the site from poor EPI 6 Long & short term recommendations
drainage for drainage improvements
46. Inadequate and poor toilet EPI 7 Proposal for additional toilets in
facilities appropriate locations
47. Litter and garbage on site EPI 8 Proposals for upgraded waste removal
and community outreach initiatives
48. Electrical encroachments on EPI 9 Proposals for electrical upgrading and
to the monument removal of encroaching facilities
49. Popular evening hours wasted EPI 10 Recommendations for evening
opening of the World Heritage Site
50 Poor security arrangements EPI 11 Recommendations for improvements
to security
ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE
Table 6.1: Correlation between the Issues raised in Part 3 of this report and the Action Plan Objectives
83
6.2.1 Overall strategy
6.2.2 Site Management Strategy (SMS) objectives
Background to the strategy
The fundamental aim of site management is retain all those elements that make
the place significant and give it meaning.
'What separates the management of heritage sites from other forms of property
management is that the fundamental purpose of cultural heritage management
should be to preserve the values ascribed to a site be they aesthetic or historical or
social. Heritage sites are not simply visitor attractions, there to provide customer
satisfaction and a reasonable profit. Such places are defined by the values we
attach to them.'
By using an approach developed by Parks Canada called 'Commemorative
Integrity’ , it is possible to evaluate the success or failure of Lahore Fort's current
management. This examines a site's health and wholeness through three basic
questions:
Are the resources that represent the site's importance impaired or under
threat?
When we ask these questions about the Lahore Fort, the answers are all
unfavourable; they tell us that the 'Commemorative Integrity' and authenticity of
the site are seriously at risk and that management style and approach needs to
change.
The following objectives aim to improve management at the site and identify the
necessary remedial action. They form the core of the Site Management Strategy;
Tables 6.4 - 6.9 present this and all other aspects of the Action Plan, giving priority,
target dates, key responsibilities and resources needed for its successful
implementation.
: Structures For Custodianship and Oversight
Safeguarding the site's universal values requires a framework to be in place - a
framework that ensures:
all stakeholders participate for the benefit of the site;
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Have the reasons for the site's designation been effectively communicated?
Has the site's heritage value been taken into consideration in decision-
making?
SMS OBJECTIVE 1
a.
compliance with Master Plan objectives;
periodic review of implementation procedures and direction for future activity;
consultation before any conservation work starts.
It must also ensure transparency, particularly where conservation work is concerned,
making this a requirement for government agencies, non-governmental
organisations or heritage conservation organisations. A lot of damage has already
been done to the site in the name of conservation; without such a framework, more
will undoubtedly occur in future.
The recommends setting up a
Site Commission to effectively manage a World Heritage site. The
acknowledge that the professional and administrative structure of such a Site
Commission 'may vary according to the situation in each country or the character of
the site, but [that] its members should be experienced specialists from various
professions. Also, it is in the interest of the World Heritage Site that the Site
Commission's relation to the national government should be such that it has sufficient
freedom of action.'
In this respect, the Government of the Punjab's Project for the Conservation and
Preservation of Lahore Fort has demonstrated its effectiveness. It has not only helped
in changing the mindset of the Department of Archaeology, but also set the direction
of future work.
A Project Implementation Team is in place. Consisting of a National Advisor,
National Project Coordinator, Deputy and expert Technical Committee appointed by
the team, they study all issues before any work begins. They have also been successful
in continuously supervising and evaluating work in progress.
A Project Steering Committee also exists. Although its terms of reference are not as
comprehensive as an Executive Committee or Site Commission's would be, it has
been extremely useful in reviewing work done and setting directions for future work.
This Committee will remain in place until the end of the present Government of the
Punjab Project for the Conservation and Preservation of Lahore Fort in 2006
Board or Site Commission may be set up.
Given the success of the present management approach, the Master Plan proposes the
following structure for both of Lahore's World Heritage sites the Lahore Fort and
Shalimar Bagh (Gardens).
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Management Guidelines for World Cultural Heritage Sites
Guidelines
5
.
Thereafter, an Executive
b. Proposed management structure for Lahore's World Heritage sites
84
i.
ii.
iii.
iv.
c.
i.
Lahore World Heritage Sites Executive Board
Site Commission
Technical Committee
Project Implementation Team
Composition and responsibilities
Lahore World Heritage Site Executive Board
A high-level board, to be chaired by the Chief Minister, Government of Punjab
and responsible for taking major decisions and ensuring cooperation between all
agencies and stakeholders.
Comprising representatives from all interested bodies, the Site Commission will
provide the forum where they will be able to actively contribute to safeguarding
the site and its environs.
Consisting of external experts in related disciplines, the Committee will provide
advice and guidance and examine the impact of proposed works at the site. They
will also check work in progress.
Comprising department officials and an external advisor, this would be modelled
on the existing project team. They will prepare proposals and be responsible for
day-to-day execution of work.
The Executive Board would comprise:
a Chairperson: Chief Minister, Government of the Punjab;
a Vice Chairperson: either the Federal Secretary, Ministry of Culture,
Government of Pakistan or the Representative, UNESCO Islamabad;
Members:
— Chief Secretary, Government of the Punjab;
Secretary, Department of Culture, Government of the Punjab;
two technical experts;
Member/Secretary: Director General, Department of Archaeology,
Government of the Punjab.
The Executive Board would be responsible for:
appointing the Technical Committee, Project Management Group and
consultants;
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—
encouraging sponsorship of the Lahore Fort Heritage Fund;
approving ways of acknowledging contributions in money or kind;
directing ways to increase public awareness, communication and
information;
approving policy on types and locations of activities.
85
The Executive Board would meet twice a year, with Vice Chairperson officiating if
the Chairperson is unavailable.
The Site Commission would comprise:
— Representative, UNESCO Islamabad;
Secretary, Department of Culture, Government of the Punjab;
a representative from the Federal Department of Archaeology,
Government of Pakistan;
Chairperson, Culture Standing Committee, Government of the Punjab;
Two Members of the Punjab Provincial Assembly (MPAs), one of whom
should be a woman MPA;
Nazim, City District, Lahore;
Town Nazim, walled city;
Three technical experts.
The Site Commission would be responsible for:
and
traffic management;
information and community and youth outreach.
The Site Commission would meet twice a year, with Vice Chairperson officiating
if the Chairperson is unavailable.
This three to five-member committee needs to include experts in the fields of
architecture, archaeology and hydraulics and engineering. If required, additional
members can be co-opted from a pool of relevant experts and consultants.
Committee membership would be on a three-year rotational basis, with a new
member joining every year.
The Technical Committee would be responsible for:
ii.
iii.
Site Commission
Technical Committee
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a Chairperson: Chief Secretary, Government of the Punjab;
Members:
—
—
—
—
—
—
—
Member/ Secretary: Director General, Department of Archaeology,
Government of the Punjab.
implementing the Master Plan 20052011;
three and six-yearly reviews of the Master Plan;
referring any deviation from the Master Plan to an Experts Committee;
coordinating reports from concerned agencies on environmental issues
reviewing priorities identified by the Project Management Group;
determining ways to improve public awareness, communication,
setting work priorities in relation to Master Plan recommendations;
86
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providing regular advice and guidance to the Project Implementation
monitoring conservation activity;
reviewing consultants' proposals.
a conservation architect;
a conservation engineer;
an archaeologist;
site supervisors;
a procurement officer;
an accountant;
a community liaison officer;
preparing proposals for work to be carried out in relation to Master Plan
preparing detailed conservation proposals and procedures for
organizing conservation work and supervising this while it is
developing proposals for protection, recording and research;
proposing ways to attract sponsorship for the attention of the Executive
supporting community and youth outreach programmes and liaison with
evaluating and submitting reports on the impact of municipal development
Team;
assessing the impact of conservation proposals;
The team will include a Team Leader, assigned from the department to solely
work on the monument. The team would comprise:
Conservation, maintenance and monitoring teams will work under the supervision
of the Project Implementation Team. In turn, these teams will collaborate with the
Documentation Centre, Research Cell and Community Outreach Cell. The Project
Implementation Team will support the Community & Youth Outreach Cell.
The Project Implementation Team would be responsible for:
recommendations;
implementation;
progress;
Board;
voluntary heritage organizations;
and traffic projects around the site.
Community and heritage interest groups, along with other organizations, can
play an important role in supporting the work of the site's custodians. The Master
Plan recommends organizing a 'Friends of Lahore Fort' to harness the enthusiasm
of voluntary sector groups who will be valuable in awareness and fund-raising
work, and in developing site facilities like the laboratory and library. There are
many examples of active and successful groups of this type in the region.
iv
v.
Project Implementation Team
Support organizations
87
Technical Committee (TC)
Members:
Tasks:
3-5 Member ExpertsCommittee Drawn fromArchitecture, Archaeology,Hydraulics, Structural Engineering;Additional members from Pool ofMembers for Specific Activity.
Determine Priorities in Contextof Master PlanProvide advice, guidance toPMTEvaluate Impact of ConservationProposalsMonitor Conservation ActivitiesReview Consultants' Proposals
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Site Management Group (SMG)
Members:
Tasks:
Team Leader (UNESCO/ Dept ofArchaeology), Conservation Architect;Conservation Engineer; Site Supervisor;Procurement Officer; Accountant; CommunityLiaison Officer
Proposals for Execution in context of MasterPlanDetailed Methodologies for ConservationOrganize & Supervise ConservationProposals for Protection, Recording, ResearchMethodologies for Sponsorships for SCCollaborate with NGOs for Community/YouthOutreach ProgramsSubmit Reports of Impact of MunicipalDevelopment and Traffic in Qila Environs
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SITE COMMISSION (SC)
Tasks:
Chairman: Vice-Chairman:
Members:
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Appoint Technical Committee, Project Management Team and ConsultantsReview Reports from Agencies re Environmental & Traffic ManagementEnsure Implementation of the Master PlanOversee Review of Master Plan after 3 years and 6 yearsReview Conservation Priorities Formulated by the Project Management TeamEncourage Sponsorships of Lahore Fort Heritage FundFinalize Mode of Acknowledgment for Contributions in Funds or KindGive Approval to Kind, Mode and Location of Activities by External Agenciesaccording to Guidelines Set in the Master PlanDetermine Modalities for Public Awareness, Communication, Information,Community and Youth Outreach
Chief Minister Punjab; Federal Secretary, CultureUNESCO/WHS Representative; Secretary Culture, Punjab; DG/Director
Federal Archaeology; District Nazim Lahore; Town Nazim Walled City; Representatives ofLahore Fort Heritage Fund, Technical Committee, Project Management Team; TourismIndustry
Refer Deviation from Master Plan to Experts Committee
Figure 6.2: Diagram of the proposed management structure
88
SMS OBJECTIVE 2
a. Government allocation
b. Gate money
c. Environmental fund
: Adequate financial resources augmented by a diversified
funding base
A focused approach to funding is needed; one that ensures the custodians of Lahore Fort
have a flexible and diverse funding base with which to apply management decisions and
carry out systematic conservation. Previous Federal Department of Archaeology funding
fell far short of what was actually required. With the site's handover to the Government of
the Punjab, more funding is being allocated. However, it is important to also explore other
sources.
Figure 3 details alternative sources and additional approaches for building a sustainable
funding base. The goal is to ensure that there is sufficient funding for periodic monitoring
and site maintenance, as well as for emergency and longer-term conservation projects.
The most effective way to achieve this is through the cooperation and active involvement
of the site's major stakeholders: the local community, conservation professionals, site
custodians and the tourism industry.
Funding for the preservation and management of the Lahore Fort comes from the
following sources.
The Government allocation, or grant, funds salaries, utilities and systematic
monitoring and conservation programmes at the site. The Government of the Punjab,
who now administer the site, are responsible for making this allocation.
Master Plan recommendations assume that gate money collected will go into a non-
lapsable fund for direct investment in the site - an assumption based on an
undertaking given by the Federal Ministry of Culture to this effect. As a working
guideline, the Master Plan recommends diving gate revenue in the following ways:
fifty per cent for conservation and the proposed regular preventive maintenance
programme;
fifty per cent is divided between research, outreach and visitation, to ensure
bottom line funding for all main sections of the Master Plan.
The Site Commission would establish such a fund. They would be responsible for
ensuring that this used to implement environmental and planning improvements.
This would include addressing issues in the site's environs, such as buying out the
rim market and special garbage collection. The Government of the Punjab
Government is also expected to contribute to this fund.
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d. National and international special project funding
e. Lahore Fort Heritage Fund
f. Crafts Fund
Provided for specific Action Plan projects or proposals, UNESCO should, through
special project teams, manage the allocation of funding from international and
national donors and sponsors.
Funds need to be readily available to tackle emergencies. Government funding, tied
by administrative hurdles, is rarely available when emergencies occur. However, on
many occasions immediate 'first aid' emergency measures can save historic fabric
from major damage and greatly reduce subsequent costs. By establishing an
endowment fund, it is possible to build up reserves for this purpose and other specific
activities.
The Lahore Fort Heritage Fund would be an endowment fund. Anyone wanting to
support the upkeep of the site could contribute. A Board of Governors would manage
the fund, comprised of members contributing substantial sums - for example, 2
million Pakistani Rupees or more. The interest earned can provide funds for 'first aid'
measures.
Ways of accessing or allocating funds could comprise:
on the basis of a First Information Report (FIR) issued by the Site Engineer/
Architect;
approved by the Technical Committee.
Four craft workshops are currently operating, set up and supported through the
present Lahore Fort project. The project has covered material costs and artisans
salaries for two years. In future, revenue generated from the sale of craft products and
replicas could go into a special crafts fund to help ensure the project's sustainability.
However, further funding to establish more craft workshops will have to be
generated separately. The potential exists for the project to continue on a long-term
basis if there is sufficient output from the workshops and retailing is properly
organized through site outlets, exhibitions and online sales.
Craft products are also an ideal way of generating visitor interest. Effective marketing
of these would:
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review and recommendation by the Project Implementation Team, confirmed by
the Technical Committee;
approval of the Fund's Board of Governors;
on the basis of a completion report by Site Engineer/Architect;
through review of a completion report by Project Implementation Team,
90
provide regular employment to artisans involved in their production;
provide a workforce who would also be able to carry out conservation work;
raise visitor awareness of the value of traditional craft skills;
create a range of quality mementos of the site, based on authentic replicas;
help create a worldwide awareness of the value of the fort.
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Proper marketing of craft workshop products requires a strategy, based on a study of
small souvenir products that meet market needs and the standards necessary for their
design and production. Although techniques, motifs and materials should be
traditional, the products should need to be innovatively designed to appeal to the
modern market. The strategy will need to plan for wide distribution and retail
success, thereby increasing the financial returns of crafts production.
The Master Plan recommends establishing a revolving fund to attract donations in
cash or kind to finance research projects. UNESCO could also assist in finding
funding for this purpose.
A percentage of all sales made at the site should go into to the Research and
Publication Fund.
Activity organisers need to be aware of the site's historical significance, and events
need to be compatible with this. Areas designated as fragile and of high cultural value
are not for use. Wherever possible, events should be open to public. If admission is
charged, it can provide an opportunity to raise funds for preservation of the site. A
percentage of the takings should go into the Research and Publication Fund, to
finance the development and dissemination of further public information.
The provides a useful model for ways of
integrating multiple stakeholders and funding approaches into a successful
conservation effort. Based on Asian best practice in fiscal management and
sustainability of heritage resources, these models and associated documentation are
available on the world wide web.
A mechanism to take advantage of contributions in kind
Although large-scale funding is required for conservation and maintenance,
contributions in kind and services will also add to the contribution base. Actively seeking
and acknowledging these is a task for a 'Friends of Lahore Fort' group. They could also
g. Research and Publication Fund
h. Retail outlets and sales at the site
i. Special Event Charges
SMS OBJECTIVE 3:
UNESCO Lijiang Models for Co-operation6
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create lists of goods and services needed at the site, actively seek donors and organise
fund raising and publicity events.
Contributions can be in the form of materials, equipment and, most importantly, time
donated by individuals with various skills wishing to participate in efforts to safeguard
the site.
It is important to pursue programmes for contributions of expertise and knowledge from
other parts of the world. Individuals with specific knowledge and experience in dealing
successfully with environmental and conservation problems in historic sites elsewhere
could, for example, be supported by their governments or other agencies to work on
specific projects. These could include the conservation of Mughal frescoes or remedying
the rising damp presently affecting buildings.
: Mechanisms for acknowledgement of contributions
All contributions of funds, materials, equipment or time need proper acknowledgment.
Ways of doing this include:
building;
The Friends of the Lahore Fort could, in conjunction with the site's Documentation
Centre, write prepare and distribute material of this kind.
SMS Objective 4
discreetly placed plaques acknowledging support in the conservation of a specific
a large board at the entrance to the site acknowledging major contributors and the
kind of assistance provided;
using the media to promote projects at the site, and their supporters;
producing flyers to update visitors on work-in-progress and planned projects, and
acknowledging the support of organizations, corporations and individuals.
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Government Allocation
Gate Money
Environmental Fund
Special Fund National/
International Sponsors
Lahore Fort
Heritage Fund
Crafts Fund
Research and
Publication Fund
Retail Outlets/ Sales
Special Events Charges
Administration, Salaries, Utilities, Systematic
Monitoring, Ground Maintenance
50% for Conservation & Maintenance of Historic
Structures; 50% for Research Community Outreach
To be established by Punjab Govt; overseen by SC
For Environmental and Traffic Improvement
To be coordinated by UNESCO for conservation
by UNESCO Site Management Group
Endowment Fund with its Board of Governors;
Interest to be Utilized for Emergency Works
To be established for
Sustainability of Craft Workshops
To be Established for promotion of
Research & Publications
Major % for Conservation & Maintenance
Major % for Conservation and Maintenance
FUNDING SOURCES
Figure 6.3 Diagram of the proposed diversified funding approach
93
SMS OBJECTIVE 5
SMS OBJECTIVE 6:
: An informed management team who understand overall
conservation objectives and priorities / managing change
An agreed set of core plans and guidelines needs to drive all cultural resource
management work at the site. They will need to demonstrate clear links between
planning and operational activity, in the same way the Master Plan does. The aim is to
provide a concise summary of values and principles to apply as a litmus test of
departmental practices.
It is essential that all staff understand the conservation theory and guidelines that support
the administration's approaches and decisions. The
states that this must include 'ensuring that all site staff understand
the cultural values to be preserved in the site.' Ensuring they do will engender
commitment and increase motivation.
The Master Plan recommends using a number of specially designed PowerPoint
presentations to target all staff, ranging from senior management to security and grounds
staff. They need to summarize the Plan's overall intent and methodology, and integrated
action plans and priorities, tailoring this to focus on the important role a given group will
have to play in reaching Plan goals. By incorporating presentations into regular, twice-
yearly workshops, there can also be discussion of issues raised. For conservation staff this
will also provide opportunities to discuss the challenges they face and learn from each
other.
The United Nations Educational, Scientific and Cultural Organization could provide
support for conducting these workshops, in the form of PowerPoint presentations and
coordinating overall planning with Project Implementation Team.
Development of the Pakistan Conservation Institute as a
viable training facility
The existing PIATR provides training in archaeology and related topics. Archaeological
training is also available at several universities in the country. However, the theory and
practice of conservation is not taught anywhere in Pakistan and a study on
recommended that an institute be set up at Lahore Fort
specifically for this purpose.
The PCI would offer training at all levels in a wide range of fields related to the
conservation and management of cultural heritage. This would include short term
certificate courses and longer term diploma programmes; subjects would range from
basic skills to specialist training, both theoretical and hands-on, with an emphasis on
training future trainers to extend skills through institutions and departments across the
country. Curriculum planning at the PCI will draw on a comprehensive interpretation of
what contributes to good conservation, as well as identifying those who can both provide
and benefit from new skills and upgrade existing ones.
Management Guidelines for World
Cultural Heritage Sites
Cultural
Tourism in Lahore and Peshawar
7
8
9
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PAKISTAN CONSERVATION INSTITUTE
Board of Governors
Conservation Training Documentation Centre
Laboratory
Building Crafts Training
Restructuring & Upgrading of PIATR
Federal Secretary, Ministry of Culture, Representatives of Federal Department
of Archaeology, DGs of Provincial Departments of Archaeology, Culture and
Tourism, Public and Private sector Universities, Heritage NGOs, Experts
Post-graduate diploma in
Studies
Training of Trainers
Publications Related to
tion Issues, Manuals, Reports etc.
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Graphic and Photographic
Conservation Documentation, Condition Surveys,
Certificate Courses in Conservation Inventories, Recording
Related Topics and Heritage Guides
Upgrading of Existing Laboratory Upgrading of Existing Library
Provision of Suitable Equipment Acquisition of Conservation
Training of Trainers Publications, Academic Publications
Conserva-
Training under Master Artisans
Improvement of Production Techniques
Production of Cultural Replicas
Research & Publications
Figure 6.4 Diagram showing the formation process of PCI
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Upgrading Venue
and Basic Technical
Resources
Formation of the Board of
Governors
Appointment of Director
and Assistant Director
Design of Programme
based on Best Practice and
identified trainee needs
Enlisting of Training
Providers
Begin Training at PCI
Funding Sponsorships
UNESCO Asian
Academy for Heritage
Management
SMS OBJECTIVE 7: Core Competency training for all levels of staff to upgrade
skills and build capacity within the department
Training in core competencies needs to comprise the first stage of a conservation training
programme. The Lahore Fort management have identified this as being essential for the
following staff at the site.
Site Cleaners.�
Site Guards.
Gardeners.
Heritage Guides.
Virsa (Heritage) Volunteers.
Skilled artisans engaged in preventive conservation.
Skilled artisans engaged in maintenance.
Supervisors.
Technicians.
Utility Inspectors.
Assistant. Curator.
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Figure 6.5 Diagram showing the structure of the Pakistan Conservation Institute
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Museum Curator.
Librarian.
Archivists.
Conservation Architects (post-diploma and refresher courses).
Conservation Engineers (post-diploma and refresher courses).
Conservation Manager.
Preventive Maintenance Managers.
Community/ Youth Outreach Specialists.
make people think about which tasks are essential;
clarify what these tasks should entail;
illustrate how various tasks depend on and compliment each other;
standardize the most efficient and productive ways of doing essential tasks.
perform the job;
design equipment used in an SOP;
perform maintenance on equipment involved in an SOP;
have an overall understanding of the management and conservation processes a
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The Master Plan recommends a UNESCO consultancy to design training manuals for
each of these job groups. By consulting employees, it should identify ways in which they
can all best support heritage preservation efforts and advance the Master Plan's goals and
action programmes. The UNESCO-ICCROM Asian Academy can assist in identifying
core competency areas, designing training modules and providing tuition.
Implementation of standard operating procedures (SOP) for
frequently performed tasks to ensure consistency and
maintenance of standards
A SOP is a systematic set of instructions for a common task in a specialized area.
Designing and implementing a series of SOPs for essential management and
conservation work at Lahore Fort will:
Standard operating procedures clearly define everyone's responsibilities. Staff will know
what to do, how and when to do it and the role they play in the overall conservation effort.
Standard operating procedures will evolve out of the core competency training exercise.
By preparing detailed evaluations of the skills required for each job, it is then possible to
itemize each job description. This will then highlight core common tasks for which SOPs
should be prepared.
Ideally, SOPs are prepared as a group exercise by teams including people who:
given SOP fits.
SMS OBJECTIVE8:
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SMS OBJECTIVE 9:
a. Logical framework analysis (LFA)
b. External UNESCO Heritage Audits
The systematic integration of analytical management tools
into the short and long term planning carried out by the
custodians of the site
Use of LFA needs to become standard practice, as an analytical, presentational and
management tool. These help planners and managers:
analyze the existing situation during project preparation;
The product of this analytical approach is the matrix, or Log frame. This summarizes
what the project intends to do and how, the key assumptions and how outputs and
outcomes will be monitored and evaluated.
Many agencies, including UNESCO, either require or endorse the use of LFA. Their
application in the planning of a programme and budget for future actions at the site
showed how useful this tool is in guiding thinking and decision-making.
Another recommended management tools for implementation is the UNESCO
Heritage Audit. This ensures that the values for which the site was inscribed on the
World Heritage List are being maintained. Section 3.1.1 of the Master Plan describes
these values.
An independent group of experts appointed by UNESCO will review the entire site,
carrying out a quadrangle-by-quadrangle and building-by-building assessment and
preparing an independent condition report. The Audit should take place every three
years, with the first one needing to take place immediately to identify baseline
conditions for future comparison.
A Heritage Audit specifically examines the following types of issues.
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establish a logical hierarchy of means by to reach objectives;
identify the potential risks to achieving objectives and sustainable outcomes;
establish how to best monitor and evaluate outputs and outcomes;
present a summary of the project in a standard format;
monitor and review projects during implementation.
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Rarity value:
are characteristic crafts, motifs and materials being authentically maintained and
skills supported?
are all periods of Mughal and Sikh architecture and design being preserved with
an appreciation of their strengths and differences?
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:
hysical and visual value:
Economic value:
Educational value
Recreational and social value:
is the view of the site unimpaired by modern development and encroachment and
does it present an image of a well cared-for monument? Are historical links with
the city around it intact?
is there income generation at the site through well-planned economic activity,
and is this being generated without negative impacts? Is the stakeholder
community feeling the benefits?
is active research taking place and being disseminated to the community so that
more is known now than before?
are events at the site appropriate and is the community drawn into its care in an
informed way?
Cultural heritage faces many kinds of risks. These range from natural hazards, such as
floods and earthquakes, to those attributable to human activities: fire and pollution;
wear and tear, and the unexpected and unintended consequences of public visitation.
The advises that 'special
precautions may be needed against vandalism, theft, fire, floods and earthquakes.'
The site needs a risk assessment and management study, as one has never been
carried out before. The International Centre for the Study of the Preservation of
Cultural Property has been active in developing and advocating the need for risk
preparedness to protect cultural heritage. Their manual is a useful guide for
defining the scope of such a study at the Lahore Fort.
Table 6.2 presents a Risk Assessment Model which can be used to monitor and
evaluate potential risks at various stages of a project. At the planning stage it can
encapsulate risk issues and help in formulating recommendations to address them.
At detailed stages of a design more specific statistical input can allow for more
focused mitigation to reduce risk to an acceptable degree. This model should be
developed for Lahore Fort as a whole and for individual heritage elements and
incorporated into the specialist study recommended above.
c. Risk assessment and management
Management Guidelines for World Cultural Heritage Sites10
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Hazard Hazard Vulnera-
L,N)
Risk = Mitiga- Residual Emerg-Probabilty bility HxV tion Risk ency
(1=low- (1=low- ( H,M, (H,M,L,N) Plan5=high) 5= high)
High humidity/
salt corrosion
Fire
Storm Water
Flood
Waste Water
Discharge
Earthquake
Thermal Stress
Lightening
Structural Damage
Termites
Birds/ Bats
Bacterial infection
Air Pollution
Rubbish
Traffic vibration
Bombing
Vandalism
Theft
Inappropriate
fabric maintenance
Cleaning
Visitor accidents
Loss of key staff
Loss of funding
Table 6.2 Risk Assessment Model format
100
d. Geographic information systems (GIS)
SMS OBJECTIVE 10
Geographic information systems provide an invaluable tool for centralizing and
adding spatial information to textual based data. Geographic information systems
are an efficient tool for responding to queries, enabling confident and rapid analysis
of situations and visualizing of patterns, trends and relationships in data. It is
particularly relevant in situations where the needs and demands of a number of
agencies and interests need integrating to develop workable solutions.
GIS mapping of the physical planning and infrastructure of the site and its environs
will allow quick highlighting of problem areas requiring impact assessment or
immediate action. It is also an important tool for graphically conveying conservation
needs to decision-makers and planners.
The Master Plan recommends a UNESCO GIS consultancy. Its terms of reference
would need to include the following points.
i. Setting up of a purpose-designed GIS Database for the site:
developing a basic user interface to serve as a query tool;
ii. Training of management team staff:
: UNESCO assistance in creating a support network of
international collaboration and interaction
To a large degree, the site's custodians have been working in isolation with little of the
valuable support that international or regional collaborative involvement can offer. It is
only since 2003, and the start of present project, that they have started to build links with
outside institutions and organizations.
The points out that 'an important
issue in relation to the management of World Heritage Sites is to establish a process that
gives a solid basis for international collaboration between those responsible for the site
management and the various international bodies such as the World Heritage
Committee, UNESCO, ICCROM and ICOMOS.' This could also include collaborative
programmes, communication and exchange with academic institutions, research and
non-governmental organizations. In addition, the Lahore Fort project is seeking
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rationalizing existing data;
standardizing existing and future data.
to ensure a sustainable programme;
based on elementary computer literacy;
designed to produce competent GIS Database administrators;
involving trainees at all stages of database development to build capacity.
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Management Guidelines for World Cultural Heritage Sites
101
assistance from UNESCO Islamabad and the Office of the Regional Advisor for Culture
for Asia and the Pacific, Bangkok, to expand the range and scope of international
involvement with Pakistani heritage professionals.
The conservation strategy aims to achieve long-term sustainable preservation of all the
tangible and intangible aspects that give significance to the site. In the shorter term, the
focus is on emergency measures to assure that endangered heritage is not lost to future
generations. The whole approach to conservation must be embedded in an
understanding of international standards and best practice. Interventions must be
appropriate to the situation and the decision to conserve based on well-judged priorities.
The overall conservation strategy addresses the following issues of immediate
concern at Lahore Fort (Figure 6.6).
a. The urgent need to identify, document and conserve all of the site's
original/historical elements. This means all structural, decorative and design
features which pre-date Independence (1947). Mughal period elements are a
priority because the World Heritage inscription recognizes the monument's
cultural significance as a Mughal palace complex.
b. Measures to prevent further deterioration in the condition of the various
historic structures, through basic stabilization and preservation work.
c. Carrying out of all conservation work in line with Master Plan priorities, to
ensure best use of any available funding. Following this policy will streamline
preservation work. It will also simplify the application process with donors
and help safeguard the site's value and authenticity.
d. Ensuring that conservation work follows set and approved procedures; that
no work begins without full discussion and detailed planning, and that work
done is fully documented and follows international best practice.
6.3 CONSERVATION STRATEGY
6.3.1 Overall Strategy
102
CONSERVATION ACTION
Detailed Graphic & Photographic Documentation
Detailed Condition Survey
Establish Requirements for Action:
Prepare Drawings for Works to be Executed
Action to Ensure Reversibility and Safeguarding
of All Original Elements
Prepare Report of Work Accomplished
(Heritage Foundation Pakistan (HFP) Format,
Numbering System and Schedules)
Develop Details and Studies
on HFP Initial Survey
Emergency work, Stabilization
Preventive Conservation/ Maintenance
Stabilization, Conservation
Based on Baseline Documentation
Carry out Full Graphic & Photographic
Documentation During Progress
History of Interventions
From Dossiers developed
Based In Collaboration with HFP
Figure 6.6 Diagram Illustrating Proposed Flow of Conservation Activities
103
6.3.2 Conservation (COS) Objectives
COS OBJECTIVE 1: All works to be carried out according to Conservation Action
Priority List
Past work at the site did not consider structural needs. Many structures that could have
been saved with comparatively small expenditure suffered, while work was carried out
on buildings that were in a relatively good condition. For this reason, the Master Plan
includes a Conservation Action Priority List (Table 6.12) to direct funds toward the most
vulnerable structures.
Based on room-by-room condition surveys by HFP, the list in Table 6.10 includes
standing structures belonging to the Mughal, Sikh and British periods. Basements are not
included in the present study because they were either inaccessible or no drawings were
available. Standing structures receive highest priority, since many of them require
immediate attention.
The Shah Burj's structures are not included in the list, as the present Government of
Punjab Lahore Fort Project is presently doing most of the critical work - for example,
repair work on the Shish Mahal ceiling. On completion of the second phase in December
2005, the Project aims to have tackled all of the major problems. This also includes
cleaning, preventive maintenance and conservation. Because of the building's great
height, it was not possible to do preventive conservation of its northern and western faces
(comprising parts of the picture wall) in this phase. Accordingly, the Conservation
Action Priority List allocates funding for future preventive maintenance of this portion.
Conditions surveys provide information used in drawing up this list. Although based on
visual examination only, they cover all rooms and record the type and condition of
material. These are first condition reports, assessing the comparative condition of various
structures and their conservation requirements and providing the basis for targeting
future work in a systematic and prioritized way.
Figure 6.7 illustrates these priorities: level one and two priority actions are for all
structures requiring emergency work and or stabilization; level three actions are
preventive maintenance and preventive conservation; level four will be actual
conservation work.
Decisions as to what work should be carried out with available funds will be made by the
Project Implementation Team, with advice from the Technical Committee and the
approval of the Site Commission. The site conservation team will implement work, with
advice from the Technical Committee. The aim is to end the past practice of
reproductions and reconstructions. The emphasis will now be on ensuring the safety of
structures, whilst retaining their authenticity and original features.
104
Figure 6.7 Diagram illustrating conservation action priority
1
2
3
4
105
CONSERVATION FUNDS
PRIORITY ACTIONS
Note:
.
Emergency
Works damage to the historic property
Stabilization
Works degradation of structure
Preventive
Conservation/
Maintenance
Conservation
Works without removing original evidence.
Funding should be directed according to priority actions. Any restoration work to be
carried out should be done after extensive discussion and after all the historic
structures of the Lahore Fort have been conserved
Immediate action to stop irretrievable
To provide structural stability and further
To provide protection to vulnerable
areas of historic property
To repair and preserve the historic property
COS OBJECTIVE 2:
Step 1:
Step 2:
Step 3
Step 4:
Step 5:
Step 6:
Step 7:
Procedure for Undertaking Conservation Works
The Master Plan recommends the following system for conservation work at the site. The
following steps aim to ensure work is done systematically, after detailed evaluation and
discussion.
apply the documentation system developed by the HFP to other parts of the site,
as the basis for preparatory work before any conservation.
aim to ensure detailed documentation is available before any conservation
work starts. It will then be possible to do a detailed condition survey by creating
drawings of all areas of concern, along with further studies based on the original
HFP Condition Survey (a copy of which is contained in the Master Plan
annexes).
: incorporate information from the History of Intervention Dossiers; developed
by the Project Research Cell under the guidance of HFP, these are available for
most of the quads at the site.
thoroughly review scheduled conservation work, on the basis of various
studies, to see whether there needs to be any further structural evaluation. If so,
the action strategy will need amending to indicate whether this is emergency
work, stabilization, preventive conservation/preventive maintenance or
conservation.
prepare detailed drawings to show the exact nature of conservation work.
These must clearly show the present position of various elements (described in
the baseline documentation), the proposed work and the means by to retain the
original elements and ensure there is no damage to these. The site supervisor
will then use these drawings to execute the work.
ensure all work done is reversible, to safeguard all original elements. The
Technical Committee must approval the removal or changing of any elements.
All work requires full photographic documentation, both during and after its
completion. Interventions also require full graphic recording, with section
views of all areas. These 'as built' drawings will then become part of the record
in the project archives, as and when this is established.
prepare a full report on reasons for undertaking the work, the process adopted
and the work done, supported by drawings and photographs. This should be
archived.
106
COS OBJECTIVE 3: Full and accessible documentation of all aspects of the site
Full and systematic documentation of all aspects of a site is the basis of all conservation
planning and decision-making. The style, construction, materials and condition of all its
built elements form the baseline for assessing comparative significance, whether of
elements or buildings and historical assemblages as a whole. Understanding the status
and needs of the site, and identifying authentic elements needing to be preserved,
determines the design of the overall conservation strategy in a number of ways: in setting
priorities for conservation works, in the design of specific conservation works and in
planning future documentation and research directions.
This documentation must also meet international standards. A successful documentation
programme is already in place at the Lahore Fort, under the management of the Project
Documentation Centre (PDC). It complies with international standards, in both the work
it is doing and the way that it does this. The PDC have an on-going staff training
programme, and uses standardized recording formats to gather data entered into to a
computerized database. The HFP-designed documentation procedures used by the PDC
cover all elements of the site. This involves assigning a unique number to each recorded
element recorded and documenting this in detail. This information is available as
baseline data, in either hard-copy folios or electronically, to support conservation work.
Future custodians will therefore have access to detailed information, regardless of
whether or not the present team remains in place.
The PDC have met most second phase conservation action priorities. However, given the
scale and complexity of the picture wall, work will continue until the end of, and possibly
beyond, 2006. Works undertaken in phase two (2005-06) comprises:
remaining detailed documentation and schedules for the Shah Burj;
quadrangles;
other
miscellaneous structures;
The aim is to fully document all elements of the site. For this, the existing documentation
system will need expanding to include recording of all unexcavated, underground
archaeological elements.
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detailed documentation and schedules of other structures bordering the
preliminary documentation of detached structures for example, gateways and
initiation of detailed documentation and schedules for the picture wall.
107
COS OBJECTIVE 4:
COS OBJECTIVE 5:
A well-equipped and committed conservation laboratory facility
One of the recommendations of the UNESCO report on
is to include a conservation laboratory as part of a proposed Pakistan Conservation
Institute. The facility would be housed within Lahore Fort and serve primarily to meet
the conservation needs of the site. This would include:
chemical treatment and analysis;
proposed new materials;
monitoring of exhibits;
To achieve these objectives, the Master Plan recommends a study to assess the present
situation, implement basic upgrading and design a phased programme of future
improvements. A chemist with experience in running an effective conservation facility
should conduct the study. It should address the issues of:
computerization;
laboratory's capacity;
laboratory
needs
Centralized and systematic storage and inventory of all artifacts
and building elements retrieved and/ or excavated from the site
Large quantities of architectural elements in various parts of the site need proper curation
and storage. These include original building elements removed in past restoration
projects, which are a valuable resource. The Master Plan proposes:
An appointed consultant, working with the PDC, should carry out this study.
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support to the monitoring and maintenance teams, through materials analysis,
support to the conservation team, through original materials analysis and testing
support to museums in the form of artefact conservation and environmental
equipment upgrading existing equipment, prioritizing new/ additional purchases,
training in equipment use for specific conservation chemistry/ laboratory needs;
updating and expanding the library as a research resource;
designing a long-term research and expansion programme to broaden the
relocating the lab: whether the current location is satisfactory, in terms of
a systematic search of the site for material in need of curation;
a computerized inventory system to document all material for easy access;
identification of a location for a centralized storage facility.
and building preservation.
108
COS OBJECTIVE 6:
COS OBJECTIVE 7:
COS OBJECTIVE 8:
Reinstallation of original historical building elements
Past conservation work has focused on removing damaged portions of monuments and
completely replacing them. In the process, much authentic, original fabric ended up in
un-inventoried storage. This needs tracing, in conjunction with an initiative to create a
site repository. Where possible, elements should go back to their original position. To do
this, the Master Plan proposes that the PDC and a conservation architect do a study to
identify these elements and to assess the viability of their re-installation.
Development of a Conservation Resource Library
Establishing a first-class conservation resource library will support professional training
and the work of the PDC and conservation staff. It should contain material on
conservation theory and practice, working manuals, international guidelines and
standards, best-practice examples from around the world and relevant journals. A first
step would be to download from the web and print important documents freely issued by
the World Heritage Centre, UNESCO, ICCROM, Getty Conservation Institute, English
Heritage, US National Parks Services, Parks Canada and other organizations. UNESCO
could assist in identifying and assembling resource material needed at the site.
Training of qualified craftspeople and artisans to carry out
conservation and maintenance work in traditional materials
and methods
The master-apprentice training system in traditional building crafts and skills has broken
down in Pakistan, leading to a serious shortage of trained artisans. Traditionally,
restoration of monuments by the Department of Archaeology and the Auqaf Department
provided training for artisans. They employed many artisans, who were able to practice
their traditional skills. One of the by-products of the past policy of replacing damaged
portions of monuments with facsimiles or replicas was to provide artisans with ample
work.
Owing to a lack of money, these departments no longer employ artisans and contractors
now do work once done by them. This practice has proved detrimental to the site's
monuments because of a lack of control over the quality of work done – artisans being the
best people to check this work. Having lost the surety of sustained employment, former
artisans moved on and have not passed on their skills to the next generation. This is a lost
to both the skilled building profession and conservation at the site.
109
The lack of skilled, trained artisans capable of meeting the stringent requirements of
authentic conservation at the site is an obstacle. Without an adequate numbers of them, it
would not be possible to carry out the work envisaged under the project. In response,
craft workshops were set up under the Government of Punjab Project. Encouragingly, in
the short period since January 2004 they have been able to make a breakthrough in
reviving interest in historical building crafts. As the
notes:
The UNESCO Report on underscored the urgency
of reviving building crafts. The National Advisor to the Craft Workshop Project at the site
subsequently developed this idea, based on the UNESCO report's findings. Given the
importance of some of the building crafts originally used to embellish the Shah Burj
structures, training is necessary before allowing any crafts persons to work these.
The paper also highlighted the possibility of selling replica work produced by trainees.
Sale proceeds from the craft products or replicas would go into a Crafts Fund to support
the workshops after the end of the present project.
The following crafts workshops are now functioning: fresco, (stucco tracery
work) and (mirror work), pietra dura and tile mosaic. The results from the
fresco workshop, run by master artisan Ustad Saif, are most encouraging. Programmes
such as UNESCOs Seal of Excellence, which recognizes craftspeople, can support this
effort to develop workshops producing innovative design and high quality products
using traditional materials and techniques.
A resource collection of building crafts
While artisans are training, a collection of historical samples of each craft and building
technique used at the site needs to put together. Properly labelled and sourced original
samples (wherever available) and replicas of the following materials and production
techniques will serve as an important reference source. They include:
stone and marble – sculptural elements, incised carving, fretwork screens;
of
brick masonry as well as chajja formations;
Management Guidelines for World
Cultural Heritage Sites
'Guidance by trade masters is essential to ensure continuity; site workshops can promote
this. Conservation crafts persons should understand the history of technology of their craft
and be able to analyze how historic work was set out and produced.’
Cultural Tourism in Lahore and Peshawar
manabbat kari
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COS OBJECTIVE 9:
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pietra dura and inlay work;
samples of fresco work;
samples of tile mosaic;
brick elements – samples from Jahangiri columns, bases and brackets composed
110
� samples of flooring patterns and compositions.
Gathering these items can be part of the process to collect and recording material for the
proposed repository, housing them as a sub-collection.
Support of In-house Conservation
This objective encourages the handling of conservation work by an in-house workforce,
rather than outside contractors. This is essential to meet the goal of careful conservation
to maintain the authenticity of the premises. For a long time, the Department of
Archaeology employed artisans who worked under departmental supervisors. This
allowed for working in a systematic way with required documentation, and enabled the
Department to discontinue using the Pakistan Works Department (PWD) for work at
historic sites in the 1970s. The Department of Archaeology set up its own engineering
wing, with a workforce and supervisors who trained when working on various sites
under is care. Such a system provided better supervision of work, onsite guidance and
supervision, along with a trained workforce conscious of the premises' historical value.
In the last 10 years however, the department increasingly used contractors for work it
earlier carried out itself. It is in a contractor's interest to do as much new work as possible.
Therefore, much of their work comprises producing new elements rather than
conserving the original. This has inflicted great damage on the site, with the removal of
remnants and their replacement with replicas. Even in the recent work on the basement
chambers, modern commercial paints were used in the frescos rather ones made from
original ingredients.
Unless it is work of a specialized nature, such as the new steel structure above the Shish
Mahal ceiling, it is important that the department staff carry out all conservation work.
For this purpose trained artisans and workers should be employed on a regular basis, so
that that they can develop the necessary 'duty of care' outlook when working on historic
premises. This proven method ensures that only those who are trained and skilled in
various conservation-related trades carry out work. It also allows continued evaluation
as work progresses and helps in the protection and reuse of historic remnants.
Accordingly, the department needs to strengthen its in-house capacity for conservation
work if it is to maintain the authenticity of site.
A specialist report,
, contains a detailed review of the existing monitoring
and maintenance situation at the site, and the factors contributing to its
COS OBJECTIVE 10:
6.4 MONITORING AND MAINTENANCE SYSTEMS
6.4.1 Overall Strategy
Management and Monitoring Systems for Conservation and
Preservation of Lahore Fort
111
deteriorating condition (Annexure 2). At present, there is no programme for
regularly and systematically monitoring and maintaining the condition of
buildings and spaces at the site; to ensure that they do not deteriorate to the point
that their integrity and significance is compromised. There is also no system to
monitor the implementation of conservation work and ensure that this complies
with specifications and set standards of intervention. Procedures exist only for
monitoring work carried out in line with approved Master Plans and
development schemes.
In response, the Master Plan proposes putting in place a monitoring and
preventive maintenance programme. By systematically reviewing building
conditions, it would identify emergency and long-term maintenance and
conservation needs. Recommendations are also made for the supervision and
monitoring of conservation works, to ensure that they are done to the highest
standards.
The Master Plan recommends that a core monitoring team, comprising a conservation
architect, conservation engineer and chemist, work under the supervision of the Project
Implementation Team.
They will carry out systematic weekly and monthly inspections, assessing all buildings
and parts of the site. In this way, all buildings receive equal attention and problems do go
unnoticed.
Routine monitoring will focus on all major elements of each building or structure,
including:
Figure 6.8 illustrates some of the general elements needing regular inspection in all
buildings.
: Systematic monitoring of the fabric of historical buildings and the
condition of Lahore Fort
6.4.2 Monitoring and maintenance (MM) objectives
MM OBJECTIVE 1
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roofs;
masonry, walls and foundations;
cracks;
storm water drainage;
moisture/humidity;
floors and staircases;
internal finishes;
drainage systems;
ruins.
112
REGULAR MONITORING INSPECTIONS
Roofs Roof Joints: Roof Deflection Cracks Roof Finish Drains, Gutters
Foundations Settlements Moisture movement
Cracks Age of Cracks New Cracks Glass telltales Micrometer
Storm Water Revival of old Drainage Rain water Inspection during and after rains
Moisture, Humidity Height of Dampness In Winter and Summer
Floors, Staircases Fungus in Timber Stairs and Floors Excessive Wear and Tear
Internal Finishes Detached Plaster Frescoes Dust and Dirt Water Seepage Vandalism
Drain System Test with bucket of water or Emission Test or Pneumatic or Electro
Magnetic
Ruins Plant Growth Loose coat of Plaster
Masonry Walls All cracks Lateral Displacement Bulges
Figure 6.8 Diagram showing monitoring needs
113
By using monitoring checklists developed for each building and structure, it is possible to
systematically assess the condition of all these elements. The Master Plan recommends
appointing an architectural consultant as soon as possible to design these. Each one will
include building-specific critical structural and decorative elements that require special
attention in maintaining its soundness and authenticity. The checklist will provide
indicators to measure change or deterioration in an element's condition. Changes in these
will then alert the Project Implementation Team to take the necessary action.
By investing in monitoring equipment – thermographs, humidigraphs and vibration
meters – telltale symptoms will be detected. These will augment the systematic
monitoring process.
Data gathered will form a baseline against which to monitor and measure change and
deterioration in building condition, and inform decisions about maintenance work
SITE COMMISSION
Monitoring Team
Punjab Archaeology Department
Technical Committee Site Management Group
: *Conservation Architect,Conservation Engineer,Archaeological Chemist Archaeological Conservator
* Specialist input as required
Maintenance Team: *Conservation Architect,Conservation Engineer,
Figure 6.9 Monitoring and maintenance teams' structure
114
needed. Specific recommendations would go to the Site Management Group. If
approved, work done by the maintenance team would need certifying on completion by
the monitoring team. This establishes a system of cross-checking of work and
confirmation of standards. Figure 6.9 illustrates the relationship between the two teams
and the site's administration.
MM OBJECTIVE 2: A programme of regular site maintenance
The states that:
'The maintenance programme is aimed at keeping the cultural resources in a
manner that will prevent the loss of any part of them. It concerns all practical
and technical measures that should be taken to maintain the site in proper
order. It is a continuous process, not a product.'
The objective of a maintenance programme is to preserve inherent values of an historical
property; safeguarding the authenticity and integrity of structures and site whilst also
preventing deterioration of the historical fabric. As the
also points out:'Prevention is the highest form of conservation. If causes of decay can be
removed, or at least reduced, something worthwhile has been achieved.'
The proposed maintenance programme links in with routine monitoring of the site.
Decorative and structural problems identified on monitoring checklists go to the
Management Guidelines for World Cultural Heritage Sites
Management Guidelines for World
Cultural Heritage Sites
16
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115
maintenance team, comprising a conservation architect, conservation engineer, an
archaeological conservator and their respective assistants. This team will work alongside
the monitoring team, under the supervision of the Site Management Group and Technical
Committee (Figure 6.9).
Both teams will discuss detailed specifications and procedures for doing the work, with
advice from the Technical Committee and site conservation architect. If specialist input is
required, the Committee can call in experts on an 'as needed' basis.
When agreed maintenance work is completed, a full report will go to the Site
Management Group. The monitoring team will review this and the work itself, certifying
it as complete and up to standard. If there are any issues or disagreements, the Technical
Committee will assist in resolving them.
Figure 6.10 shows the steps required to set up and run the system for monitoring site
condition, and planning and implementing maintenance action.
Monitoring Teamconfirms maintenancework
Maintenance Teamreports of work done
INITIAL TASKS: Initial Inspection Report
PROGRAMME:
Identification of MaintenancePriorities
Implementation of MaintenanceWork
to identifycritical monitoring issues: ConsultingConservation Architect
TechnicalCommittee
on Checklists and identify new ones;data recorded on building specificforms: Monitoring Team
: Monitoring Team +Maintenance Team + ConservationTeam + Technical Committee
: Maintenance Team
Monitoring Checklists
ONGOING Regular Monitoring
: ConsultingConservation Architect +
to assess issues
Figure 6.10. Setting up and implementation of the monitoring and maintenance programme
MM OBJECTIVE 3:
MM OBJECTIVE 4:
a. Preservation of exposed building remains and foundations
b. Monitoring of site work involving excavation
A system of monitoring conservation work carried out by the
department or under their supervision
Monitoring and inspecting conservation work will be a standard procedure for the site's
conservation team. Monitoring and maintenance teams will jointly supervise and
continuously check all ongoing conservation work. This includes studies of specific
conservation situations to design the best means of working, preparing surfaces and
materials before work starts and writing detailed specifications. It is also essential that
skilled conservators or contractors with sound knowledge of conservation doing the
work complete full reports on its completion.
Protection of archaeological resources
Archaeological resources at Lahore Fort consist of areas of ruins and exposed building
foundations which, 'because of their lost physical integrity, are subject to particular
problems of decay and therefore merit special treatment and care ' The site's
archaeological remains are subject to damage by pedestrian traffic and exposure to the
elements. There are also open areas, presently covered with recent soil deposits or under
hard surfaces or sealed areas adjacent to standing historical structures, which could be
exposed during conservation work. In all cases, important information lies sealed below
the surface of the site. This could be lost unless a comprehensive approach for
safeguarding remains and presenting these to the public is in place. It needs to deal
with the following issues.
All areas of archaeological remains should be superficially cleared, mapped and
their condition assessed. The maintenance team should clear these with the
supervision of an archaeologist. The PDC, with the supervision of an archaeologist,
should carry out mapping and recording. The site's conservation team and an
archaeologist will need to assess their condition and advise on any action.
istorical integrity. Any material added must be compatible and reversible, and
the work done under the supervision of the site conservation architect and an
archaeologist.
with
fragile ruins, as unrestricted walking and climbing on these causes damage.
All work involving excavation in archaeologically sensitive areas of the site must be
prohibited unless necessary. Figure 6.11 shows these areas. This includes
.
in situ
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After mapping and recording, fragile remains should be recovered with a layer of
soil or gravel.
Exposed remains may need combining with other material to preserve its
h
Routing visitor traffic away from ground level remains and closing off areas
116
maintenance excavations, conservation of historical buildings, garden digging,
access to drains and cables or other work.
Any work penetrating more than 25 cm below the surface in these areas must be
subject to an archaeological monitoring programme. Archaeological monitoring,
sometimes referred to as a watching brief, will not stop work or substantially delay it;
the aim is to ensure the retrieval and recording of any archaeological finds and
information revealed.
The Master Plan recommends designing an Archaeological Monitoring Programme,
including a manual or SOP, all necessary pro formas, registers and a programme for
processing material and data recovered during monitoring.An archaeologist trained in the monitoring system must supervise the monitoring, or
watching brief. Staff training will therefore also need to be part of the Programme.
The programme to protect archaeological remains below ground should follow the
three-fold approach presented below in Figure 6.12. During emergency management
of exposed areas, research and planning should also begin on devising a long-term
archaeological research plan. At the same time, monitoring procedures need
designing and putting in place at the site.
117
Fig. 6.11 Map showing the areas of exposed archaeological remains and of archaeological potential
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ResearchIdentification of areas of exposed archaeologicalremains and of underground potential
Emergency Programme:
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Add to MonitoringProgramme
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Mapping of remainsAssessment ofpreservation needsImplementation ofconsolidation orprotection measures
ArchaeologicalMonitoring of Worksin areas of potential:
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ArchaeologicalInvestigations:
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Consultant study toplan archaeologicalinvestigationprogrammeGeophysical TestingExcavations with a“History in Action”programmePost-excavationprocessing andanalysisReport andpublication
Figure 6.12 Long term protection of below ground archaeological resources
MM OBJECTIVE 5: Initiation of an expanded cleaning maintenance programme
for the site
Cleaning of marble surfaces has begun, under the supervision of the Assistant Chemist
and his staff. This follows experiments, in 2003, to establish a correct cleaning procedure.
After looking at various ways, and because Sepiolite is not available in Pakistan, it was
decided to use mild detergent and clean water. This has proved effective – cleaning the
marble surface without making too white, and enabling it to blend in with other adjacent
material. The most difficult areas to clean have been the intricate fretwork screens,
consisting of miniscule hexagonal patterns.
Given the huge scale of the operation to clean the Shah Burj and the rest of the citadel, the
project created a cleaning brigade of low-income women from the staff colony. This has
proved extremely successful, due to the women's determined effort. Equipped with
brushes, masks and caps, they are systematically removing decades of grime from the
site's marble and brick. This initiative should cover all areas of the site, and continue on a
long-term basis to maintain standards of cleanliness.
118
Specialist advice is required on the best and safest methods to clean the monument's
fragile elements like frescos, delicate plaster mouldings and tile mosaic work. General
cleaning or non-specialist laboratory staff cannot do this, as it is highly skilled work.
The Master Plan requests UNESCO to assist in bringing in specialists and organizations
with experience in conserving Mughal art to work at the site.
Review of the planting programme
The conservation team needs to work closely with senior garden staff in identifying areas
where plant watering is affecting buildings. Where this is a problem, the solution is to
remove and relocate plants further away from the affected building. The Dalans (cells), on
the perimeter of the Maidan-e-Diwan-Aam are a case in point. Relocating plants caused
no loss to the integrity of the gardens, as the planting did not follow the original Mughal
layout.
Damage of this kind to historical fabric is reported to or picked up by the monitoring
team. They then consult the conservation team. The maintenance team will then do any
remedial work.
The purpose of a research framework is to promote and support wide-ranging research
and make best use of all opportunities to extend knowledge and understanding. A
research framework document will therefore need to signpost a wide range of issues and
topics for anyone interested in researching the site.
The site's research framework must:
assess the state of existing knowledge and clearly identify gaps which need
filling;
highlight those baseline research topics essential to developing further
enquiry;
disseminate the framework's principles among academic and research
institutions to
MM OBJECTIVE 6:
6.5 RESEARCH FRAMEWORK
6.5.1 Overall Strategy
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stimulate scholarly and specialist research.
119
6.5.2 Research Framework (REF) Objectives
REF OBJECTIVE 1: Mechanisms to support a wide ranging research programme
at Lahore Fort
A research cell exists as part of the revitalized PCI. It will carry out the following work.
a) Design a research framework with the following objectives:
understanding historical processes at the site, shown in the chronological
development of the building plan, design, decoration and use;
creating
the garden landscape in the Muslim world;
evolution;
with the walled city;
and use;
authentic conservation and management.
Table 6.3 presents broad areas of research focus and examples of specific research topics.
b) The Research Cell will also:
students
doing research;
material for projects at the site;
Pakistan
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understanding the use and meaning of space, water and vegetation, in
understanding the manipulation of the landscape in the site's creation and
understanding the changing physical and metaphorical relationship of the
Lahore Fort
understanding the site in the wider context of Mughal fort design, construction
providing and using information as an aid to the site's effective interpretation,
manage the acquisition of archival material;
manage any allowances paid from the Research and Publication Fund to
arrange library exchanges, internationally and nationally, for relevant research
publicize the Research Cell's agenda throughout the academic community in
and abroad to attract students, scholars and researchers.
The also recommends that a
Research Coordination Committee be set up. This would advise on and organize long-
term programmes, involving a succession of researchers, or short-term programmes for
individuals. It would also set goals, establish work plans and schedules and review
progress. At present, research at Lahore Fort is almost non-existent and without funding.
However, at this point a committee structure would not be appropriate for the Research
Cell, as it would be potentially restrictive. The firm recommendation, also given in the
that 'close liaison be maintained
with universities and other facilities interested in the cultural resources' receives full
support.
Management Guidelines for World Cultural Heritage Sites
Management Guidelines for World Cultural Heritage Sites
19
120
Site Studies:
— the functions of Structures and areas;
Chronological development of the plan
and function of parts of the Qila
— Building sequences and architectural
phases
— Stylistic analysis of structural and
decorative elements
— Study of Mughal hydraulic system
through archaeological methods
— Historical studies of persons and events
— Study of miniature paintings and other
artistic sources
— Compilation of references to Lahore
Fort in Persian manuscripts and other
early works
— Compilation of Royal Asiatic Society
references and other learned journals
— The changing relationship of Lahore
Fort to the Walled City
— Study of exhibits in the site museums
— Cataloguing and study of structural
fragments in storage around the site
Landscape Studies:
Regional Studies:
Technical Studies:
— Study of Ravi River relationship to
the site over time
— Flora / botanical studies
— Stratigraphic studies of the site
modification
— Chemical soil mapping
— geophysical examination of the site
— Understanding of the site within the
context of Mughal South and central
Asia
— Compilation of a Research
Bibliography of Mughal studies
— Materials analysis
— Study of specific conservation
methods
— Scientific dating of structural and
excavated materials
— Soil, hydrology, micro-climates etc.
Table 6.3 Research Framework: types of studies that would contribute to the research base
REF OBJECTIVE 2: A Lahore Fort publication programme
Now well established, the Research Cell needs to begin publishing; initially, about work
done. This can then subsequently expand to include publication of past and on-going
research, adding to the body of knowledge about the site.
Developing a publication programme is a priority. This would need to detail the kinds of
publications the Cell aims to produce (pamphlets, books, leaflets, guides). It would also
need to include a publishing schedule and cost breakdowns, define contributor
responsibilities and serve as a plan for the short and medium-term. A properly
developed programme will be very important in attracting contributions from national
and overseas sources to the Research and Publication Fund.
121
REF OBJECTIVE 3: Programme of archaeological research and investigations
A much-needed programme of archaeological investigation will provide evidence
clarifying the plan and date of buildings, building phases and the relationships between
various parts of the site. Techniques used in garden archaeology can also help to trace the
changing plan of the Mughal gardens, planting schemes, built features and hydraulic
systems. This would create an integrated picture of change through the centuries.
The specific objectives of the proposed archaeological programme are:
to clarify the plan, identity and date of built remains, where knowledge is presently
only partial, fragmentary or anecdotal (i.e. known only through literary or artistic
references);
architectural phases of known structures;
and the chambers around the Maidan;
view to
restoring original schemes;
restoring original designs to working order;
increase
community interest in its conservation.
The programme will involve:
particular risk;
research;
high
potential, particularly evidence of the hydraulics system;
On-going archaeological excavation also provides an educational opportunity for
student and community involvement 'in the field'. If properly managed, it also provides
an opportunity for inspiring a public interest in 'history in action'.
Figure 6.11 shows recommended areas for archaeological investigation. A consultant
archaeologist, in conjunction with archaeologists of the department, now needs to
prepare a detailed proposal for archaeological research and investigation at the site.
Detailing aims and areas for investigation, field and post excavation methodology,
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to resolve questions concerning building sequence and relationships between
to define the pattern and layout of the original gardens in the historic quadrangles
to identify the species of plants used in Mughal period garden schemes, with a
to understand define Mughal period hydraulics and water features with a view to
to develop local awareness of the historical depth and richness of site and to
initial research to identify areas of the site with high archaeological potential or at
creating a GIS database to manage information generated by archaeological
a non-intrusive geophysical survey to identify sub-surface features and areas of
soil sampling and chemical mapping;
excavating selected areas of high archaeological interest;
post-excavation processing and analysis of data and finds.
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122
staffing, schedule and costs, this will be an important part of the overall strategy for
preserving the underground archaeological resources discussed in MM Objective 4b.
ResearchIdentification of areas of exposed archaeologicalremains and of underground potential
Emergency Programme:
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Add to MonitoringProgramme
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Mapping of remainsAssessment ofpreservation needsImplementation ofconsolidation orprotection measures
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ArchaeologicalInvestigations:
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Consultant study toplan archaeologicalinvestigationprogrammeGeophysical TestingExcavations with a“History in Action”programmePost-excavationprocessing andanalysisReport andpublication
Figure 6.12 Long term protection of below ground archaeological resources
Upgrading of the library
There are plans to relocate the library to Hazuri Bagh. Regardless of whether this
happens, there needs to be fundamental improvements to bring it up to standard. The
library particularly needs to safeguard the collection and to make it easier for scholars to
conduct research. In the first instance, it should become a reference library with all books
remaining in the Library. All rare material needs to be under lock and key, with copies for
reference.
One of the main aims of the Research Framework is to encourage and support scholars to
do research and use the library. For this to happen, library facilities need upgrading in the
following ways.
provision of computers for use by scholars;
REF OBJECTIVE 4:
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123
provision of a photocopying machine and flatbed scanner;
better shelving for books;
tables and chairs for researchers and staff;
a stationery allocation;
better lighting and electrical outlets.
the Senior Librarian;
a representative of the Northern Circle, Federal Department of Archaeology;
a representative of the Research Cell;
a representative from the Friends of Lahore Fort.
appoint an archivist specializing in paper and photographic storage;
create a separate archival section in the PDC or Library;
properly catalogue all archival material;
store it in special acid-free enclosures in acid-free boxes;
create photograph prints of all glass slides and fragile or important negatives;
digitize and scan all material for ease of use.
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A Library Committee would be responsible for advancing these improvements and
seeking urgently needed funding. It would comprise:
Programme for collection, storage and inventory of archival
material
Archival material at the site consists of maps, drawings and photographs. Many maps
and drawings date from late nineteenth and early twentieth centuries, and are the only
record of its kind in Pakistan. Consisting of both glass slides and negatives, this
photographic material provides invaluable evidence about the past condition of the site.
Given the fragility and importance of this material, it is important to fully catalogue and
then store it in an acid-free environment. Glass slides, many badly damaged, need
printing, with photographic copies arranged for easy access by researchers. Overall, the
record is an extremely important source for research.
Developing a proper environment for storing and curating archival material is a priority.
If this is to happen, there is an urgent need to:
Part of the Master Plan study involved developing a detailed, long-term proposal for
presenting and using Lahore Fort whilst maintaining, protecting and enhancing its
historical and cultural authenticity. The full report is in Annex 3. The overall aim of the
REF OBJECTIVE 5:
6.6 VISITATION POLICY
124
visitation plan is 'to enhance visitor understanding and appreciation of the site and its
heritage values, while at the same time safeguarding it from inappropriate exploitation.'
As is widely accepted, cultural tourism can provide benefits; to a country's economy and,
in the case of Pakistan, by helping promote a 'soft' cultural image. If properly briefed,
visitor to the Lahore Fort can act as individual 'cultural ambassadors'. However,
converting the ordinary visitor into a cultural emissary is going to require a great deal of
effortnot least, in provide them with authentic and interesting information, attractively
presented in a variety of media. A key aim of the Visitation Policy is to bring Lahore Fort
to life and by explaining its past, give it new meaning in the present.
The Policy's overall strategy includes:
making Lahore Fort accessible and enjoyable for a broad spectrum of people;
activities and events.
An Emergency Protection Plan to control visitor access and
close fragile areas
Proposals for the use of different parts of the site use the following designations.
tructures and garden areas. In these areas, there is a focus on display and
educational facilities. There are rest areas, but no provision of food or service facilities
(maximum restrictions on permitted usage).
interventions outside the HCRA, the lawns around the Akbari gate and northeastern
area of the site. Visitor facilities, offices, the proposed craft centre and picnic areas are
in this zone (defined but more relaxed restriction).
Fortification Walls and the British period steps. The Plan proposes development of
these zones for visitor facilities, recreation and performances (widest usage within
defined limits).
20
6.6.1 Overall Strategy
6.6.2 Visitation Policy (VIP) Objectives
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ensuring that events and activities are of a high quality;
preventing or minimizing negative impacts on the site;
developing a public commitment to the site;
maximizing income-generation by use of the site as a venue for authorized
public
High Cultural Resource Areas (HCRA), comprising the main Mughal quadrangles,
s
Middle Cultural Resource Areas (MCRA), primarily comprising British period
Recreational Zones (RZ), consisting of the Maidan, the lawn between the Northern
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125
These designated areas contain some structures and areas strong enough to withstand
frequent visitation; others are too fragile for public access. A detailed review has been
made of fragility levels for each structure within these zones. This also factored in special
features, general conditions and potential interest for the general visitor. Based on the
review, an index of building robustness divides buildings and areas into categories and
specifies visitor levels. They are:
This index is in now in use. Recommendations for acceptable types and levels of use for
individual buildings, structures and open spaces are in Annexure 3.
The next step is to confirm which very fragile areas of the site visitor misuse and the
pressure of numbers are damaging. The PDC could do this, basing their survey on
findings in Condition Survey Catalogue and Table 9 in Annexure 3 (Fragile structures
and elements). It will then be possible to design and implement measures to immediately
prevent access to these areas, using direct and indirect methods for controlling visitor
movement.
Direct means include:
Closure of the Naulakha Pavilion and the Shish Mahal has set the precedent for this type
of restricted access.
Indirect means include:
very robust resources, which can be open to all visitors;
less robust resources that can be open, but with controlled access.
fragile resources that can tolerate only limited or restricted access.
very fragile resources, only accessible to researchers and special interest groups.
immediate closure of areas identified as being at extreme risk, ensuring that public
access is impossible;
a system of soft and hard barriers to divert visitors away from sensitive areas and off
delicate paving, making them viewable from a distance only;
redirecting visitor traffic into other areas by use of signs and paths to guide visitors to
other less-frequented areas, such as the picture wall, which can be viewed safely from
a distance.
increasing the numbers of guards and redeploying them to the areas identified as
most at risk from visitor misuse;
boosting the number of guards, by implementing a student volunteer programme as
a priority;
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126
arranging special activities during public holidays to encourage to crowds to disperse
to other less frequented areas of the site — activities of this type could include staging
theatrical events on the British-era steps, and opening the ramparts as a viewing
platform.
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The 'carrying capacity' concept addresses this question of how many people can visit a
site at any given time without the risk of degrading it and the visitors' experience of it.
Clearly, the overall numbers of visitors to Lahore Fort are often unacceptably high and
visitor numbers are causing damage to particularly vulnerable areas. However, the idea
of limiting the numbers of visitors to the site is contrary to its standing as a national
monument and a World Heritage site. The logistics of limiting access would also be
difficult.
The standard approach to these issues is to apply limits of acceptable change. This is
based on the principle that rather than trying to limit numbers of visitors, heritage
managers must decide how much impact and change is acceptable in a site's various
zones and find ways of making sure these limits are not exceeded. The process includes an
inventory of existing conditions to provide baseline data for identifying indicators to
measure the impacts of tourism and the nature and extent of changes.
The Master Plan recommends that a consultant conduct a carrying capacity study of the
site, in terms of limits of acceptable change principles. Its findings can then help
determine visitor route planning, zone use, decisions to close fragile areas and
deployment of guards.
In the long term, the main entry into the site should be from the east, through the Akbari
gate. The main exit will be through the Alamgiri gate and Postern gate, leading to the
Hazuri Bagh area and beyond. Routes defined within the citadel open up as much of the
site as possible to visitors, whilst considering overall robustness of buildings and spaces
and visitor safety issues. Fig. 6.13 presents the schematic plan for visitation to all parts of
the site and proposed route alternatives.
127
Fig. 6.13 Map Showing Visitors' Facilities and Routes
128
VIP OBJECTIVE 2: An integrated interpretative policy based on sound research
The long-term Visitation Plan proposes a system of visitor facilities housed in adapted
historical buildings. These would include a visitor centre near the eastern entrance to the
site and two small sub-centres; one in the Postern gate barracks, the other near the British-
era steps. The ground floor of Kharrak Singh Haveli would become an interpretive
gallery, the former British garages an information centre in and the to-be-conserved
imperial kitchens a craft centre (see Figure 6.13). The plan proposes creating a centre for
childrens' activities in the Barood Khana. The proposed facilities need augmenting
through a comprehensive policy for site interpretation, design of site furniture, signage,
interpretive and promotional material and a system of tour guides.
The Master Plan recommends that a Site Interpretation Study develop this policy of
integrated interpretation for presenting the site to visitors. The Project Documentation
Centre, in conjunction with the proposed Research Cell and the Site Commission, can
generate the information needed to interpret the site.
Interpretation of the Lahore Fort World Heritage Site for the public must:
a. be based on factual and reliable information;
b. generate 'themes' or stories explaining the significance of the site to the community,
particularly students and young people;
c. be transformed into a wide range of media, including: signage, web sites, booklets,
brochures, audio-visual and guide packs;
d. be consistent and follow well-thought-out themes or topics providing an interesting
and multi-faceted picture of the site;
e. be planned, designed and located in line with international standards for site
interpretation.
The Study needs to provide:
an overall, detailed policy for enabling visitors to interpret Lahore Fort, employing a
wide range of media and approaches;
and
significance and its meaning to Lahore, Pakistan and the world community;
— range and types of signage;
�
details of the 'themes' that will tell rich and varied stories about the site, its history
plans for implementing the policy, including:
— location of signage;
— a brief for a design competition;
— content and text for a range of printed material and CDs;
— setting up the interpretive gallery.
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129
Developing designs for signage, printed material and other media could happen in one of
two ways: through a consultancy, or by through a competition among tertiary art colleges
and other institutions. The outcome would be designs for a basic colour scheme, motifs
and logos to apply to all forms of interpretive material generated by the Centre.
In the short term, stopgap measures can improve display at the site. These could include:
temporary general information and map boards; pamphlets explaining the historical
background and significance of the site; display boards about the crafts workshops, the
cleaning brigade and the conservation work being carried out at the Shish Mahal.
Upgrading of the Museums
The museum at Lahore Fort is a wasted resource. A minimal investment in time, effort
and money could upgrade it to a standard where it provides an informative and enjoyable
visitor experience. A museum upgrade package would comprise:
carrying out a research project on artefacts and exhibits, and the historical contexts
and periods they represent;
and
highlight exhibits;
regular cleaning programme thereafter;
conservation staff to ensure sympathetic treatment of historic interiors;
galleries to visitors and to give meaning to their visit; where there are no panels put
new ones up;
and safe display of fragile paper exhibits.
The Master Plan recommends that a consultant co-ordinate this work, overseeing its
implementation by Lahore Fort staff formed into a Museums Action Group. This would
comprise members of the Research Cell, PDC, maintenance and cleaning staff and
. They should also think about relocating the museum to another area at the
site, and identify a building that could support specialist exhibits.
VIP OBJECTIVE 3:
�
reviewing and updating acquisitions and inventory procedures;
preparing a basic brochure providing an introduction to the museum - its scope
looking at alternative display cases;
having the museum galleries completely and thoroughly cleaned - and instituting a
painting the display space to brighten it up; this must be done on the advice of
where display panels exist, put up text and illustrations to explain the content of the
seeking expert advice on whether special facilities are needed for the conservation
�
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Friends
of Lahore Fort
130
VIP OBJECTIVE 4: To draw the community of Lahore into all aspects of Lahore
Fort's present and future safeguarding
Until recently, the local community in Lahore has had no role in caring and planning for
the site. As described in Section 3.5.7, this has changed for the better because of a number
of Karavan-style initiatives designed to actively involve youth and women. At present,
the PDC is acting as a proxy Karavan-style office. Because of the success of recent heritage
awareness events, staged in conjunction with Karavan Pakistan, and a vocal and visible
expression of interest from the local community, a dedicated officer is now running a
Community and Youth Outreach Cell at the site.
The Karavan approach, with its dedicated voluntary component, can stimulate youth and
the public to becoming involved in activities that will benefit the site. Initiatives such as
heritage cleaning, awareness raising and fostering a greater understanding of the site's
history need support on a recurring basis. Regular events held in designated areas of the
site help in bringing it to life for a large number of people. The Maidan-e-Diwan-e-Aam is
the most suitable venue for holding public functionsfor example, its highly effectively use
for large-scale public events in the Karavan 'HeritageFest' in January 2004. The Karavan
office must aim to:
ensure regular and meaningful dialogue with the local community and relevant
government departments;
The following tools and models will usefully help achieve these aims.
( ) is an initiative that helps foster local community
stewardship over the vast and varied heritage resources in the Asia and Pacific
region. The programme aims to encourage local community action for heritage
conservation, within existing legal frameworks and under the supervision of
conservation professionals. Project activities assist people living within or near
heritage sites to take a leading role in site management and preventive conservation,
and site interpretation for visitors. This provides local communities with the
opportunity to benefit both economically and socially from conservation of their
community's heritage.
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to understand how the local community perceives and values the site;
respond to their willingness to contribute to the future of the site;
understand community expectations and how they can be met;
ensure the community understands the site's status and importance.
�
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Local Effort and Preservation LEAP
131
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Student Virsa Volunteer Programme
Schools Programme
The enthusiasm of youth and students needs harnessing through the creation of a
Virsa Volunteer Programme for young volunteers. Volunteers can immediately
begin to supplement the number of guards in site areas at particular risk from visitor
misuse. They can also train as guides, once a brief training module exists to provide
the volunteers with authentic and relevant information. The Community Outreach
Unit will need to put together the module, arrange for their training and providing
overall supervision.
The Community and Youth Outreach Cell needs to develop a Schools Programme to
strengthen existing links with schools previously involved in programmes at the site
and to create new ones who have not yet participated. There are a number of ways to
do this, including:
i. designing and implementing a youth and student 'Virsa Volunteers' programme;
ii. staging an event of some kind every month, involving youth and women;
iii. extending the Karavan World Heritage Mural exercise;
iv. counting school and student attendance;
v. planning ways to spread authentic information about the Fort and other World
Heritage sites, targeted at children, young people and women;
vi. promoting the UNESCO programme.
Restoration of the historical relationship between Lahore Fort
and the Walled City
During the British period, the Fort was cut off from the walled city with the closure of
Akbari gateway. This severed a centuries old link with the local community (see Figure
6.14)a link that a proposed study needs to find ways to restore. Working within the city's
planning framework, it will need to identify ways to reopen the gateway and restore what
would be a colourful tourist trail through history to the Delhi Gate. This heritage trail
would pass through the historic centre of Lahore, past shops, bazaars and houses and
architectural gems like the Wazir Khan and Maryam Zamani Mosques. Such a project
would require an integrated programme of restoration, environmental improvement and
presentation design.
A walled city linking study would provide information about existing tourist resources,
develop strategies for revitalization the historic environment and crafts activities and
integrating nearby resources into a comprehensive visitor package. To do this the study
Heritage in Young Hands
VIP OBJECTIVE 5:
132
Fig. 6.14 Map showing the Shahi Guzargah (royal route) to link the site with the walled city
133
will need to identify all stakeholders with an interest in the planned route, including
residents, shop owners, city government departments and agencies.
Relocation of visitor services and amenities
The present canteen needs relocating from the Moti Masjid quadrangle to the former
royal kitchens, after their planned conservation. The Visitation Management Plan also
recommends relocating food stalls to the British steps, and that the consumption of all
food is restricted to the Maidan area.
The Project Implementation Team should review recommendations in the Visitor
Management Plan, and liase with the Site Commission and site custodians on identifying
appropriate locations for basic visitor facilities. In the long-term, facilities, including
those for catering, need relocating outside of or on the periphery of the site.
Events management
Monuments and sites benefit in many ways from use; they take on meaning for visitors,
providing a stimulating and historically evocative experience. This, in turn, provides a
significant justification for the expense and time involved in their conservation. The
challenge is to strike a balance between preserving site components' significance and
presenting these in meaningful, modern context. The key requirement, in every instance,
is to identify compatible uses that require minimal alteration to the site's fabric and its
setting.
In this respect, use of a site as an event venue requires very careful handling. For example,
the live theatre staged in 2004 in Jahangir's Quadrangle undoubtedly entertained many
people. However, the accompanying use of fireworks and horses, which were allowed to
gallop through the site, posed an unacceptable threat to its fabric. Alternatively, the
Karavan HeritageFest used the Maidan-e-Diwan-e-Aam to stage vignettes from Mughal
history; and did so without threatening the structures in any way, in spite of the large
numbers that attended the event. Theatrical events using animals need confining to the
Maidan area, and use of fireworks limited to hand-held and self-contained devices that
have no direct contact with historical resources and fabric.
It is extremely important to clearly spell out these and other safeguards - for example,
those clearly identifying the areas for various kinds of activities and any limitations that
apply. The Project Implementation Team and Technical Committee need to put together a
set of and issue these to prospective site users. These
guidelines will also need the endorsement of UNESCO, the Executive Board and the Site
VIP OBJECTIVE 6:
VIP OBJECTIVE 7:
Historical Site Use Guidelines
134
Commission. They also need to be strictly enforced.
As a policy, the site's management should not allow events that would result in its closure
to visitors. A World Heritage Site must be open to all and not restricted to private use by
any special sections of society. As a publicly owned and funded site, it is unacceptable to
spend public money on entertaining the social elite - especially when it so urgently
required for conservation work.
Adaptive re-use of historical buildings for visitor use
The objectives of re-using historical buildings for visitors should be:
to ensure the long-term care and preservation of historic places;
As a basis for decision-making about proposed reuse of site elements, the Master Plan
divides potential uses into the following categories.
1. Historical spaces and building for display only.
2. Fragile or valuable areas, with no public access and reuse allowed.
3. Historic spaces with buildings used as backdrops for events: care necessary in
relation to installation of lighting and equipment, contact with original fabric,
vibration and pedestrian impacts. Use must follow the principle of conserving
existing spaces and access patterns without modification.
4. Historic buildings with no modifications for events. Buildings considered robust
enough, and of only moderate significance, can be used as 'shells' for events and
activities that do not require any modifications or additions to the building fabric and
are in line with Historical Site Use Guidelines on lighting, equipment, contact with
original fabric, vibration and pedestrian impacts.
5. Historic buildings modified and adapted for use as visitor facilities.Identified in the for reuse as visitor facilities and display
areas, these include the royal basements, Karrakh Singh Haveli and Bharood Khana.
They will require considerable refurbishment and modification to meet user
requirements and building code standards. This approach only applies to buildings
whose cultural/historical significance is low and condition is very poor, and where
major adaptation and modification would make it a meaningful component of the
site. Again, any works will clearly specifying in a Building Modification Brief
VIP OBJECTIVE 8:
�
to minimize negative effects of any change of use;
to best convey a building's historical meaning.
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Visitor Management Plan
135
prepared by the Conservation team and endorsed by the Technical Committee. If
changes in use are of a kind that could adversely affect a building, the Building
Modification Brief must fully justify these - especially if there are alternatives that
would have less impact. Above all, proposed modifications must not prevent the
possibility of interpreting a building's significance.
An existing Environmental and Physical Infrastructure Study identifies conditions
affecting the site and its immediate environs. It proposes a framework for improving and
protecting these. The full text of Study is in Annex 4; the following section presents a
summary of major recommendations.
The overall aim is for an integrated and phased approach to the site's critical
environmental and infrastructure issues. The Master Plan attempts to make
realistic proposals for change, whilst acknowledging the complexity of many of
the environmental problems, and political and administrative realities facing the
site's custodians.
The core issues, which need addressing first, are those in and around the site that
directly affect its buildings, spaces and overall integrity. These are highlighted
here. The Master Plan proposes developing a policy to guide short and longer-
term action to address these critical environmental problems.
Policy objectives are divided into those affecting the site's environs, under
heading 6.7.2 (Environmental Plan Objectives), and those affecting the site itself,
under 6.7.3 (Physical Infrastructure Objectives).
: Revitalization of the environs of Lahore Fort and
reinstatement of a viable Buffer Zone
Annexure 4 identifies and Figure 6.15 and 16 highlight many of the issues in the site's
immediate environs. Solutions to these can only exist through joint effort by the relevant
concerned agencies and local government departments. Table 6.3 itemizes the issues,
recommends action and identifies the responsible agents. All proposed efforts require the
involvement of the site's custodians. This includes the Site Commission, which is
responsible for maintaining links and coordinating action with town, city and provincial
levels of government.
6.7 ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE PLAN
EPI OBJECTIVE 1
6.7.1 Overall strategy
6.7.2 Environmental Plan (EPI) Objectives: the site's environment
136
Issue: Responsible Agent:
Garbage Collection Town & City Governments
Shifting of Rim Market Punjab Government
Re-routing of Traffic City Government
Shifting of Bus Terminus Punjab Government
Pedestrianized Areas Town & City Governments
Plantation and improvement of parks in the periphery Town & City Governments
Table 6.4. Issues related to the buffer zone and responsible agents
Fig. 6.15 Map of Lahore Fort and its immediate environs, and existing traffic management
137
EPI OBJECTIVE 2 :
EPI OBJECTIVE 3
Phase 1:
Phase 2:
Phase 3:
Entrance location and corresponding parking areas
In the short-term, the Alamgiri gateway will continue in use as the main entrance to the
site. However, if the proposal to open up the Akbari gateway is successful this will
become the main entrance. The present parking lot, located in Hazuri Bagh, is adjacent to
the present main entrance. Entry to this is through a narrow congested lane. The
recommendation to make Hazuri Bagh a vehicle-free area would, if adopted, mean
shifting the parking somewhere else. In the longer-term, when the entrance moves to
Akbari gateway and encroachments like the rim market are removed, the space cleared
could then become a green belt and parking area on the site's eastern periphery. Related
facilities could be located here, including a visitor's reception centre and other services
such as food outletsall in a landscaped setting.
: A phased approach to the issues of traffic and pedestrianization
in the site environs
The Master Plan recommends a phased approach to the issues of traffic and
pedestrianization, beginning with remedial action designed to be easily and quickly
implemented. Recommendations involving studies and coordination between numbers
of departments are of a longer-term nature. In brief, the phases comprise:
pedestrianization of the Hazuri Bagh, and relocation of parking to the Iqbal Park lot
across the Grand Trunk (GT) Road and interim areas to the south and east shown in
Figure 6.16;
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investigating the use of plants, water features and other protective elements to offset
the adverse effects of road traffic;
enforcing restrictions on stopping and parking to reduce congestion and idling
caused by heavily polluting vehicles, particularly along the northern periphery
where a large number of buses are parked and washed throughout the day.
initiating a Traffic Planning and Management Study to investigate ways of reducing
heavy traffic on the GT Road, through diversions;
diverting traffic using Fort Road along the south of the site, to the parallel road on the
other side of Ali Park as a temporary measure while the overall traffic situation is
assessed and a permanent rerouting solution is worked out.
closing the GT road to all polluting traffic and rerouting this away from the site;
opening alternative car parking areas to the east of the site to coincide with the re-
opening of the Akbari gate, in the area now occupied by the rim market (Fig. 6.16).
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138
Fig. 6.16 Traffic rerouting and designated pedestrian areas
139
FORT ROAD
PROPOSED CAR PARKING FOR 150 CARS
PR
OP
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ED
PA
RK
ING
FO
RV
IST
OR
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SP
ITA
LR
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Implementation of Cultural Heritage Impact Assessments
Cultural Heritage Impact Assessment (CHIA) is a legally endorsed system for assessing
the direct and indirect effects of proposed development and construction on cultural
resources. It identifies these effects and, if negative, specifies enforceable measures to
mitigate them. CHIA is a very useful tool for evaluating the acceptability of various
proposed works and development, both inside and near the site.
At present, developments in the site's immediate environs occur without any
consideration of the effects that these may have its preservation and integrity. Any
proposed development within a designated distance should require a CHIA. The Site
Commission is responsible for identifying these.
All proposed actions in or uses of the site that, if taken, are likely to have a significant
impact on its outstanding universal values should be subject to the impact assessment
process. The Site Commission is responsible for identifying situations that need assessing.
The Master Plan recommends a study to define how to best implement CHIAs in both
these situations. It will need to take a different approach when assessing works outside
the site; it will involve liaison with town and city authorities, government departments
and, in some cases, private developers and property owners. Cultural Heritage Impact
Assessments need integrating into local planning processes. Cultural Heritage Impact
Assessments of proposed works within the site have a narrower scope and conducting
them will be a more straightforward process.
The study should set out the basic procedures for carrying out CHIAs, defining
qualifications for those will implement them.
Partnerships with the Lahore City Government and the tourism
industry to achieve preservation goals
Effective site safeguarding also depends on successfully tackling external environmental
issues. Its future is integrally linked to issues of population growth, housing, traffic
control and routing in adjacent city areas. Many of the problems the site faces result from a
lack of commitment and coordination between various levels of government and
different departments. Lahore Fort is presently a lacuna in urban land use and zoning
plans, with no recognition of the need to use planning tools to protect it and to maximize
its potential to generate cultural tourism related income. Making effective and
sustainable preservation and management of the site's environs a reality will require the
commitment of all levels of government, relevant agencies and the public.
EPI OBJECTIVE 4:
EPI OBJECTIVE 5:
In the environs of the World Heritage Site
Within the World Heritage Site
140
A Lahore Fort Site Commission is will be responsible for bringing these stakeholders
together. Its membership will need to include representatives from the city of Lahore, the
walled city and Federal and Provincial government. Together, with the site custodians
and Technical Committee, they will need to monitor plans and developments which
affect site. They also need to aggressively pursue the Master Plan's environmental goals
and respond promptly to new developments and conditions.
Proposed upgrading and controlling of the site's surroundings will create a zone with
high land values and development potential. Developing this area for cultural tourism
associated with the site will inevitably result in opportunities for income generation
within the local community, particularly in the walled city. For this to happen clear
guidelines are necessary; specifying acceptable types of tourism and culturally related
development within the area around the site, to ensure its protection and maintenance of
a suitable buffer zone and setting.
A first step in this process is an Integrated Urban Conservation Planning and Land Use
Study; a comprehensive strategic planning study of land use in the walled city and other
areas adjacent to site, to define conservation zones. The Executive Board is responsible for
instructing relevant government departments and policy-makers of these aims.
: Surface water drainage on the site and the damage to historic
buildings
Present storm water drainage is damaging historic fabric in a number of places at the site.
The main causes are the intentional channelling of water through historical buildings,
leaking pipes and drains and consequent rising damp.
A study needs to identify remedies and design a more effective system of storm water
collection and removal from the site. It needs to specify ways of protecting highly
vulnerable fabric, like the picture wall, from water seepage. It also needs to review the
provision and storage of water at the site - a challenge, given the absence of drawings
detailing the supply and distribution system and the need to have to re-create these. The
study's review needs to recommend ways to monitoring leaks, assess the efficiency of the
tube wells and overhead tank and upgrade the overall system. It will also have to consider
the future of the current staff colony, and make recommendations for its redesign or
relocation.
In the interim, stopgap measures need putting in place to prevent further deterioration
and mitigate damage to historic fabric. Annexure 4 illustrates these measures.
6.7.3 Physical Infrastructure (EPI) Objectives
EPI OBJECTIVE 6
141
EPI OBJECTIVE 7:
EPI OBJECTIVE 8:
EPI OBJECTIVE 9
EPI OBJECTIVE 10:
Management of garbage and solid waste
The site needs efficient systems for removing solid waste and disposing of this outside the
buffer zone. Annexure 4, proposes some
measures. The first stage target is to have upgraded bins located at the most important
and heavily used points, and ensure waste is regularly removal from the site.
A planned Karavan 'No Litter' initiative will help to control and prevent this problem at
heritage sites. It aims to instil a sense of responsibility in the public toward the site,
particularly the young. It will involve registering and motivating school groups to collect
litter, with raffle draw and recognition certificates for those involved. Community
outreach initiatives like this heighten community awareness and help reduce the burden
on site staff.
Improvement of toilet facilities
The Master Plan study found numerous defective toilets at the site. Many of these are
damaging building fabric, principally through leaking pipes. A priority recommendation
is to remove most of these, and concentrate new facilities at strategic locations in line with
. When the need arises, serviced mobile toilets can also
supplement these.
As a first step, all pipe leaks need repairing and, where necessary, replacing. In the long-
term, all toilet and water sources in historic buildings need closing off.
: Upgrading of the electrical provisions at the site
The Master Plan recommends upgrading electrical facilities and distribution in various
parts of the site. As a priority first step, the Site Commission must have all electrical
supply equipment (transformers, poles and brackets) attached to historic fabric removed.
This work will need supervising by the site conservation architect and the Technical
Committee. The site maintenance team will need to carry out any subsequent
reconstruction work on the walls.
Enhancement of the site for evening use
The Master Plan recommends extending the site's opening hours into the evening, for at
least several days a week. This will mean reviewing existing site illumination. Section 10
of Annexure 4 presents one option for lighting the site, to permit visitor circulation and for
its beautification. It incorporates decorative bollards, spotlights, lamps recessed in the
ground and fibre optic lighting systems.
The Technical Committee and conservation team will need to carefully examine all
proposals; no option is acceptable if it involves directly attaching equipment to the
Environmental and Physical Infra-structure Study,
Visitor Management Plan
142
historic fabric. Similarly, it is important to ensure these do not subject fragile pigments to
excessive light; that installations do not disturb un-monitored excavations or use
unsympathetic and inappropriate design elements.
: Improved standards of security at the site
To improve the overall situation, the Master Plan recommends an overhaul of the existing
security system. It would entail increasing the numbers of on-site guards, and providing
them with communication and other equipment. Preparing a core training module is a
first stage priority, so that security staff knows which areas of the site are strictly off limits
to visitors and what forms of visitor behaviour are unacceptable.
The Master Plan recommends outsourcing security for the site's museum to a specialist
provider. They will need to put forward detailed measures for upgrading this. The
system should incorporate electronic surveillance, using CCTV. It may also require
installation of mechanical or infrared alarm systems.
Virsa volunteers can also assist in safeguarding the site. After training, they can perform
the same role as regular guards. They are likely to have a greater rapport with young
visitors, allowing them share information about the site's heritage in a way that regular
guards cannot.
The following tables, 6.56.10, identify priority levels, target dates for completion and
agents responsible for each objective. They also include assessments of the types of
resources needed for implementation.
Priority Level
Key priorities that underpin the overall Plan, and need
immediate action.
Critical recommendations needing initiating or implementing to
prevent further erosion of the site's value.
Proposals which, when implemented, will substantially
reinforce safeguards.
Long-term plans for safeguarding the site.
Target Date
Started or starting, and will continue.
Work to start as soon as possible.
Within one year.
Within three years.
Within six years.
EPI OBJECTIVE 11
6.8 Lahore Fort OBJECTIVES - ACTION PLAN 2006-12
High
Medium
Lower
Desirable
Ongoing
Immediate
Short-term
Medium-term
Long-term
6.8.1 Key to the Action Plan Table:
143
144
Tab
le6.5
LA
HO
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FO
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OB
JEC
TIV
ES
-A
CT
ION
PL
AN
2006-2
011
SIT
EM
AN
AG
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TS
TR
AT
EG
Y(S
MS
)
1O
bje
ctiv
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rio
rity
Per
iod
Res
ou
rces
Nee
ded
Key
Ag
ents
SM
S1
Sit
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anag
emen
t
SM
S2
Div
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fied
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nd
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SM
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ntr
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tio
ns
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no
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SM
S5
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ter
Pla
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SM
S6
Pak
ista
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on
serv
atio
nIn
stit
ute
Hig
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ed
Low
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Short
Med
Long
On-
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Funds
Funds
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UN
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able
Term
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goin
gic
es
(US
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(US
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10,0
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mitte
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tment
35,0
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80,0
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SM
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T200,0
00
SC
SM
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T40,0
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SM
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T44,0
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200,0
00
84,0
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SM
S6.1
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lled
5,0
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SM
S6.2
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gup
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I80,0
00
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50,0
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SM
S7.1
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20,0
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40,0
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tion
40,0
00
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00
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anagem
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25,0
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SM
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bora
tion
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anag
emen
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rnat
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olla
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rati
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146
Tab
le6.6
SH
AH
IQ
ILA
OB
JEC
TIV
ES
-A
CT
ION
PL
AN
2006-2
011
CO
NS
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TIO
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TR
AT
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)
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bje
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rces
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,MT,
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bili
zation
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s*
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ventive
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ation/M
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148
Tab
le6.7
Lah
ore
Fo
rtO
BJE
CT
IVE
S-
AC
TIO
NP
LA
N2006-2
011
MO
NIT
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iew
of
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nta
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149
Tab
le6.8
Lah
ore
Fo
rtO
BJE
CT
IVE
S-
AC
TIO
NP
LA
N2006-2
011
RE
SE
AR
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150
Tab
le6.9
SH
AH
IQ
ILA
OB
JEC
TIV
ES
-A
CT
ION
PL
AN
2006-2
011
VIS
ITA
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151
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rafts
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orm
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or
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agem
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152
Tab
le6.1
0S
HA
HI
QIL
AO
BJE
CT
IVE
S-
AC
TIO
NP
LA
N2006-2
011
EN
VIR
ON
ME
NT
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DIN
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UC
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I)
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bje
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153
EP
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rica
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vice
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ht
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min
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ty
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100,0
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imple
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posals
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tsS
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I9.1
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gin
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llations
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154
6.9 CONSERVATION PRIORITY LIST
Table 6.11 sets out priorities for implementing various types of preservation work at site.
Table 6.12 sets out Year-wise targets for conservation action over the six years of the
Master Plan. The Conservation Action Priority List was prepared after careful evaluation
of buildings and structures, including Condition Surveys. It identifies structures at risk
unless immediate action is taken, and others which are stable and requiring only long-
term conservation.
The list divides work into three levels of priority:
Priority 1 actions includes all emergency and stabilization work;
Priority 2 actions includes preventative conservation action;
Priority 3 actions includes ongoing conservation needs.
With a comprehensive list detailing the condition of various structures, it is possible to
carry out conservation in line with the priority list. This will ensure endangered
structures receive emergency attention and stabilization as soon as possible.
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6.10 RECOMMENDATIONS FOR FURTHER SPECIALIST STUDIES
The following list of recommended specialist studies and projects will support the Master
Plan's effective implementation. Some are studies. Site management / staff or consultants can
do these as part of an ongoing preservation programme.
to identify potential risks to the World Heritage Site and design a programme of detailed
preventative action [with consultant];
to set up a purpose-designed GIS Database for the site and train the management team in
its use and applications [with consultant];
to work with site management and staff in defining all tasks and designing basic training
needs [with consultant];
to assess the present situation, implement basic upgrading and design a phased
programme of future improvements [with consultant];
to systematically search the site for material needing curation; design a computerized
inventory system to document all material for easy access; and to identify a location for a
centralized storage facility;
�
�
�
�
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Risk Assessment and Management Plan:
GIS design and implementation:
Core Competency Training Plan:
Conservation laboratory study:
Repository Plan:
155
�
�
�
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Monitoring checklists:
Archaeological monitoring programme:
Proposal for archaeological research and investigations:
Design of a research framework:
to design building-specific checklists for monitoring and assessing condition,maintenance and conservation needs [with consultant];
to design a method of monitoring all excavation works on site; to ensure retrieval ofarchaeological finds and data while protecting monuments and deposits [withconsultant];
to retrieve information about Mughal use and design of open spaces and the historicalhydraulic system; to design a system for archaeological monitoring of works on site [withconsultant];
to identify gaps in knowledge and areas for priority research; to promote interest in theacademic community;
�
�
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Publication programme:
Drainage study:
Site interpretation study:
Museums upgrade initiative:
Carrying capacity study:
Historic site use guidelines preparation:
Crafts design, sales and marketing study:
Walled city link study:
to set an agenda for future publication and production of all forms of printed and digitalmaterial;
detailed survey and study of the site's drainage and associated conservation issues [withconsultant];
to develop an integrated interpretation policy for presenting Lahore Fort to visitors,producing an overall policy, themes for presentation and implementation plans [withConsultant];
to research and then carry out an inventory, redesign of display presentation andimprovements to physical conditions and layout;
to assess how many people can enter areas of the site and how this affects it, in order to setmanagement guidelines for visitation [with consultant];
to create guidelines and rules for the use of all parts of site for public events, to safeguardit;
to defining a strategy for the design, quality control, sales and marketing of products fromthe Workshops [with consultant];
to design a linking route, recommend a method for implementing this and negotiate planswith all stakeholders [with consultant].
156
157
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2005
Table 6.12(a) Year-wise Targets for 2006
No. Name Studies Emerg- Stabili-Zation Cons vation Source
TOTAL 57,737 180,919 187926.182 246,033 14,545
GRAND TOTAL 687,161
Prev. Conser- Fundingency
1.2 Diwan-e-Aam 1,818
1.3 Daulat Khana-e-Khass-o-Aan 7,273 5,818
1.5 Makatib Khana 5,455 7,273 19,055
2.2 Moti Masjid 7.273 32,727 7.273 12,727
2.3 Mai Jindan Haveli 5,455
3.2 Janoobi Iwans 18,182
3.4 Mashriqui Suite 2,364 8,182
3.5 Mashriqui Burj 10.909 8.182
3.6 Bangla Pavilion East 2,727
3.7 Jahangir's Khwabgah 6,545
3.8 Maghribi (West) Burj 10,909 8,182
3.9 Maghribi (West) Suite 909
3.11 Zenana Hammam 12,727 10,000
4.2 Diwan-e-Khass 9,091 23,636 23,636 10,000
4.4 Hammam-e-Badhshahi 5,455 36,364
5.2 Imperial Zenana Mosque 22,727 29,091 5,455
5.3 Kala Burj 5,455 29,091
5.4 Lal Burj 5,455 20,909 25,455
7.1 Shah Burj Forecourt 36,364
7.2 Athdara 7,273 2,909
7.3 Shah Burj Quadrangle 17,241
7.4 Shish Mahal 12,727 UNESCO
7.7 West Sehdara Pavilion S 1,364
7.8 Naulakha Pavilion 5,000 2,273
7.9 West Sehdara Pavilion N 1,364
9.1 West Pictured Wall 5,000
9.2 North Pictured Wall 9,091 40,919
10.4 Imperial Kitchens 18,182 27,273
10.6 Akbari Darwaza 14,545 22,727 14,545
10.8 Alamgiri Darwaza 18,182
UNESCO
UNESCO
UNESCO
UNESCO
UNESCO
UNESCO
158
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2006
Table 6.12(b) Year-wise Targets for 2007
No. Name Studies Emerg- Stabili- Prev. Conser- Fundingency Zation Cons vation Source
1.2 Diwan-e-Aam 36,909
1.3 Daulat Khana-e-Khass-o-Aan 14,545 56,364
1.4 Karrak Singh Haveli 47,273
1.5 Makatib Khana 28,582
2.2 Moti Masjid 24,545
3.2 Janoobi Iwans 20,000 21,818
3.3 Mashriqui Iwans 16,364
3.5 Mashriqui Burj 12,727
3.6 Bangla Pavilion East 4,545
3.7 Jahangir's Khwabgah 11,818
3.8 Maghribi (West) Burj 12,727
3.9 Maghribi (West) Suite 8,182
3.10 Maqhribi (West) Iwans 13,636
3.11 Zenana Hammam 13,636
4.2 Diwan-e-Khass 38,182
4.3 Khwabgah-e-Shah Jahani 29,909
4.4 Hammam-e-Badhshahi 17,273 26,354
4.5 Arz Gah 2,364
5.2 Imperial Zenana Mosque 14,545
5.3 Kala Burj 43,636
5.4 Lal Burj 38,182
6.3 South Dalans 4,091
6.4 North Dalans 9,091
6.5 Gor Darwaza 2,273
7,1 Shah Burj Forecourt 11,818
7.2 Athdara 11,818
7.4 Shish Mahal 20,000
7.5 East Sehdara 5,000
7.6 South Dalans 7,000
7.8 Naulakha Pavilion 10,000
7.9 West Sehdara Pavilion N 5,000
8.1 Shah Burj Darwaza 5,000 9,000
8.2 Hathi Paon & Ghulam Gardish 10,909 30,909
9.1 West Pictured Wall
9.2 North Pictured Wall 40,919 54,545
10.4 Imperial Kitchens 27,273
10.6 Akbari Darwaza
10.8 Alamgiri Darwaza 36,364
11.1 East Fortififcation Wall 36,364
11.2 South Fortification Wall 9,000
TOTAL 40919 349,546 510,025
GRAND TOTAL 900,490
159
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2007
Table 6.12(c) Year-wise Targets for 2008
No. Name Studies Emerg- Stabili- Prev. Conser- Fundingency Zation Cons vation Source
1.4 Karrak Singh Haveli 49,564
2.3 Mai Jindan Haveli 30,909
2.4 Western Dalans 14,545
3.1 Jahangir's Quadrangle 27,273
3.3 Mashriqui Iwans 33,636
3.4 Mashirqui Suite 10,909
3.7 Jahangir's Khwabgah 17,273
3.10 Maqhribi (West) Iwans 28,182
4.1 Shah Jahan Quad 29,091
4.3 Khwabgah-e-Shah Jahani 31,818
4.5 Arz Gah 9,455
5.4 Khilwat Khana 2,000 5,545
5.6 Basement Kala Burj 5,000 10,000
5.7 Basement Lal Burj 5,000
8.1 Shah Burj Darwaza 10,091
9.1 West Pictured Wall 14,091
9.2 North Pictured Wall 54,545 122,752
10.1 British Garages 9,091
10.2 British Barood Khana 4,582
11.2 South Fortification Wall 9,182
11.3 West Fortificatiaon Wall 13,000
11.4 North Fortification Wall 13,000
TOTAL 10,000 10000 230,764 309,770
GRAND TOTAL 560,534
160
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2008
Table 6.12(d) Year-wise Targets for 2009
No. Name Studies Emerg- Stabili- Prev. Conser- Fundingency Zation Cons vation Source
1.1 Maidan-e-Diwan-e-Aam 36,364
2.3 Mai Jindan Haveli 40,000
3.1 Jahangir's Quadrangle 30,000
3.12 Basements 10,000
4.1 Shah Jahan's Quadrangle 30,000
4.5 Arz Gah 14,545
5.1 Paein Bagh Quadrangle 27,273
5.6 Basement Kala Burj 7,000
5.7 Basement Lal Burj 10,000
9.1 West Pictured Wall 14,091
9.2 North Pictured Wall 54,545 122,752
10.2 British Bridge 1,091
10.5 British Shed 16,364
10.7 British Steps 25,455
10.9 Postern Gate 1,818
Curator Residence 6,364
11.3 West Fortificatiaon Wall 14,273
11.4 North Fortification Wall 14,273
TOTAL 10,000 10,000 196,183 260,025
GRAND TOTAL 476,208
161
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2009
Lahore Fort SafeguardingYear-Wise Conservation Targets - 2010
Table 6.12(e) Year-wise Targets for 2010
No. Name Studies Emerg- Stabili- Prev. Conser- Fundingency Zation Cons vation Source
No. Name Studies Emerg- Stabili- Prev. Conser- Fundingency Zation Cons vation Source
1.1 Maidan-e-Diwan-e-Aam 36,000
3.12 Basements 25,000
5.7 Basement Lal Burj 7,000
9.1 West Pictured Wall 41,818
9.2 North Pictured Wall 122,752
10.5 British Shed 16,364
10.7 British Steps 25,455
10.10 Curator Residence 6,364
11.3 West Fortificatiaon Wall 14,273
11.4 North Fortification Wall 14,273
3.12 Basements 20,000
9.1 West Pictured Wall 41,818
9.2 North Pictured Wall 122,752
TOTAL 25,000 54,001 187,298
GRAND TOTAL 241,299
TOTAL 20,000 164,570
GRAND TOTAL 184,570
Table 6.12(f) Year-wise Targets for 2011
162
163
Other studies, which need carrying out by external agencies, include:
assessment and redesign of traffic management in and around the site to lessen its effectson Lahore Fort;
a comprehensive strategic planning study of land use in the walled city and other areasadjacent to Lahore Fort, to stimulate cultural tourism and define conservation zones;
To define how CHIAs can be for work outside the site, involving liaison with cityauthorities and integrating these into local planning processes; and for proposed workswithin the site.
As a World Heritage site, the Lahore Fort is the property of the community of Lahore,Pakistan and the world and every visitor therefore has a stake in its preservation. Whencarrying out projects at the site, the public need informing about the nature of the workand the reasons for it. It is possible to achieve this by a variety of means:
producing a regular newsletter for distribution to visitors, updating them on what ishappening at the site;using site notice boards to describe what work is taking place, upcoming events andwhat is on view;using information panels wherever work is taking place, giving background to this,plans and up-to-date progress reports.conservation, craft activities or archaeology 'in action' provides the public with afascinating insight into the preservation process and enriches the visitor's experience.
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Traffic planning and management study:
Integrated urban conservation planning and land use study:
Cultural Heritage Impact Assessment study:
6.11 Sharing Progress with the Public
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164
References
1. Kelly,
2001.
2. Fielden, Bernard and Jukka, Jokilehto,
ICCROM, Rome, 1993.
3. Clark, Kate, 'Preserving What Matters: Value-led Planning for Cultural Heritage Sites.'
, Vol.16, No. 3, p. 5-12.
4. Parks Canada, , 1994.
5. , op.cit.
6. UNESCO Office of the Regional Advisor for Culture for Asia and the Pacific,
7. , op.cit., p. 30.
8. PowerPoint™: computer application software for presentations, produced by Microsoft
Corporation.
9. UNESCO, Islamabad, 2003, p. 150.
10. , op.cit., p. 30.
11. Stovel, H, , ICCROM, Rome, 1998.
12. Box, Paul, , UNESCO,
Bangkok, 2001.
13. , op.cit., p. 30.
14. op.cit., p. 82.
15. , op.cit., p 50.
16. , op.cit., p 41.
17. ibid., p. 41.
18. ibid., p. 41.
19. ibid., p. 28.
20. Pedersen, Arthur,
, ICOMOS International Specialized Committee on Cultural Tourism, UNESCO, Paris,
2002, p. 60.
Best Practice in Cultural Heritage Management. Best Practice in Cultural Heritage Management
(Historic Heritage on Parks & Protected Areas): A Report to the ANZECC Working Group on National Park
and Protected Area Management,
Management Guidelines for World Cultural Heritage Sites,
Conservation,
The CGI Newsletter
Standards and Guidelines for the Conservation of Historic Places in Canada
Management Guidelines for World Cultural Heritage Sites
Cultural Heritage
Management and Tourism: Models for Cooperation Among Stakeholders,
Management Guidelines for World Cultural Heritage Sites
Cultural Tourism in Lahore and Peshawar,
Management Guidelines for World Cultural Heritage Sites
Risk Preparedness: A Management Manual for World Cultural Heritage
GIS and Cultural Resource Management: A Manual for Heritage Managers
Management Guidelines for World Cultural Heritage Sites
Cultural Tourism in Lahore and Peshawar,
Management Guidelines for World Cultural Heritage Sites
Management Guidelines for World Cultural Heritage Sites
Managing Tourism at World Heritage Sites: A Practical Manual for World Heritage Site
Managers
www.pc.gc.ca/docs/pc/guide/nldclpc-sgchpc
www.unescobkk.org/culture
165
PART 7
Mechanisms for Implementation
166
PART 7
MECHANISMS FOR IMPLEMENTATION OF THE MASTER PLAN
7.1 IMPLEMENTING THE MASTER PLAN
7.1.1 Goals
7.1.2 Term of the Master Plan
This section of the Master Plan pulls together all recommendations for action
from the various plans and discusses ways to effectively implement these.
Carrying out a plan will often mean reallocating existing time, money and human
resources. Therefore, the first step is to develop a system for actually carrying out
intended work. Just because a plan exists and staffing is available, it does not
mean that the two are effectively aligned to do the job. Staff may need assigning
new duties, or a new committee or sub-body creating. It is very important to have
a clear understanding of how the work is going to be done, and who will do what,
before any is attempted.
The goal of implementation is to advance all long-term objectives set out for the
site. In summary, these aim to:
achieve the highest standard of conservation and presentation to preserve the
site's significance;
Given staffing and funding realities, it is clear that moving towards this goal can
best be achieved by focusing on those key strategic shorter-term objectives
highlighted in Part 6 of the Action Plan.
ICOMOS recommends that the minimum period for a World Heritage Site
management plan is five years, followed by a review. This Master Plan is
designed to achieve its basic vision over six years. The first three-year period, or
Phase I, will deal with stabilization, emergency conservation work and stopping
all forms of deterioration. Phase II focuses on implementing programmes which,
�
work towards inclusive and effective management;
seek adequate funding for long-term financial stability;
ensure the site is systematically and pro-actively monitored and maintained;
implement a comprehensive access policy for a wide range of people;
enhance the quality of the visitor experience through sustainable visitation;
continue to build strong relations with the local community.
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168
while less urgent, are still central to the site's effective management and
conservation. Long-term action, extending beyond the six-year term, comprises
Phase III.
Schematic timetables for the Action Plan's various components are set out in the
Lahore Fort Objectives - Action Plan, Table 6.4 - 6.9.
Conservation and maintenance of the Lahore Fort will be a continuous process,
subject to funding, and cannot strictly follow an imposed schedule. The Master
Plan sets out priorities for conservation work and highlights buildings and
elements needing emergency conservation. As funding becomes available,
decisions on using it most effectively need to follow defined priorities.
Section 1.5 lists key agencies and partners involved in implementing the Master
Plan. The Lahore World Heritage Executive Board and the Site Commission will
have overall responsibility for ensuring recommended actions are implemented
in line with Plan priorities and guidelines. The Technical Committee will advise
them and work with the Project Implementation Team, who will function as the
executive arm. The World Heritage Centre will also play an important advisory
and training role, providing links with international expertise and potential
funding sources.
Given the shared responsibility for the site, it is important that all parties formally
agree to and support Master Plan requirements - particularly the Federal and
Punjab Governments, as respective owner and custodian of the site. The goal is to
make the document legally binding on the custodians, those responsible for
administration and management, the Executive Board, the Site Commission and
the Project Implementation Team.
Figure 7.1 shows the parties responsible for implementing the Action Plan.
7.1.3 Agents responsible for implementation
169
UNESCO World Heritage Centre
Federal Departmentof Archaeology
PCI Board of Governor
Pakistan ConservationInstitute
Research andPublication Cell
DocumentationCentre
CommunityOutreach Cell
Laboratory
Federal
Government
Departments
Punjab
Government
Departments
Lahore Town
and City
Government
Departments
Punjab Departmentof Archaeology
Site Commission
Technical Committee
Site ManagementGroup
MonitoringTeam
MaintenanceTeam
ConservationTeam
Pool of private, corporate, public and community workers toassist in all aspects of managing and preserving Lahore Fort:
Figure 7.1 Partners responsible for implementing Action Plan components
LibraryCommittee
HeritageNGOs
Friends ofLahore Fort
Museums ActionGroup
AcademicInstitutions
Community ActionGroup
TourismIndustry
VirsaVolunteers
Private/ CorporateSector
170
7.2 REVIEWING THE MASTER PLAN
a. Ongoing evaluation
b. An annual performance review
c. Three-year audit
d. Long-term programme evaluation
Conserving and managing a World Heritage Site is a dynamic process. It does not stop
with the production of a Master Plan document. Decisions beyond the scope or control of
the Plan programme can change the conditions it aims to influence. The action plan may
not be able to meet its goals if there are changes in the problems and issues it aims to
address. Action plan objectives will need reviewing, and decisions made about best
future strategies. In this way, it will continue to be flexible and relevant. This is in line
with the , which states that 'reviews
at regular intervals can, if the planning process is scientific and logical, correct mistakes
and refine concepts.'
Implementing a system for reviewing issues and strategies will enable revision of the
Master Plan, as and when this is necessary (Figure 7.2). This would entail updating and
reissuing the concerned section, recording any change or addition under Plan
amendments.
Reviewing the Plan will involve applying the following procedures in an integrated way.
This involves continually looking at what you are doing and how you are doing it.
The Project Implementation Team and other custodial staff perform this type of
evaluation daily, as part of their regular routine.
This is a more formal level of evaluation, to check whether Master Plan objectives are
being met and determining the most effective strategies for the following year. Using
new information collected from amendment records, an annual progress review to
measure progress against short-term Action Plan objectives. The site custodians and
Project Implementation Team will conduct these annually, with support from the
Technical Committee.Prioritizing conservation needs will be an important part of annual performance
reviews, to ensure that funds spent effectively. This will be a Technical Committee
responsibility, carried out in consultation with the Project Implementation Team.
The three-yearly Heritage Audit will evaluate the effectiveness of Master Plan
proposals in safeguarding the site's values and authenticity.
At the end of its six-year term, a review will thoroughly examine the management
Management Guidelines for World Cultural Heritage Sites
1
plan's strategic components including:
the vision statement;�
171
the statement of goals;
identification of objectives;
Action Plan elements.
This will determine whether the plan still meets site and community needs, and
whether a major programme overhaul or rethink is required. Long-term evaluation
will involve a wide range of stakeholders, including the Executive Board, Site
Commission, Technical Committee, Project Implementation Team and expert
advisors.
The World Heritage Committee requires periodic reports on the state of conservation
of the World Heritage properties in its territories. The Committee stipulate that
reporting must be carried out every six years. The site's next report is due in 2008.
The purpose of periodic reporting is to:
provide an assessment of the application of the World Heritage Convention;
provide an assessment of whether the property's World Heritage values are being
maintained;
provide up-to-date information about the property, recording any change of
circumstances and its state of conservation;
provide a means for regional cooperation and exchange of information and
experiences between States Parties.
Section II of requires a
description of the management in place at the site, an assessment of the factors
affecting the property and an analysis of the state of monitoring of the site. This
details the property's condition, using key indicators for measure the state of
conservation. If, as is the case with the Lahore Fort, no indicators were identified at the
time of inscription, they need to be developed for future reporting. However, it is not
clear whether this happened as part of the 2002 reporting exercise.
The state that:
‘Up-to-date information should be provided in respect of each of the key
indicators. Care should be taken to ensure that this information is as accurate and
reliable as possible, for example by carrying out observations in the same way,
using similar equipment and methods at the same time of the year and day.'
Based on this assessment, the guidelines require a description of proposed future
actions. The proposed review programme of on-going evaluation, annual
performance review, three year audit and long term programme evaluation will
generate this 'up-to-date- information' for integration into the periodic reporting
process.
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e. Periodic Reporting
The State of Conservation of Specific World Heritage Properties
World Heritage Guidelines on Periodic Reporting
2
3
172
ONGOING In House Evaluation (MG)
Review of ConservationProposals (TC)
Review of Planning andInfrastructure Proposals (SC)
Review of ConservationWorks (MG + TC)
Annual PerformanceReview (MG + TC)
Review of ConservationPriorities (MG + TC)
Heritage Audit (UNESCO)
Long Term ProgrammeEvaluation (MG + TC + SC +
Expert Input) and WorldHeritage Committee Periodic
Report
ANNUALLY
EVERY 3 YEARS
EVERY 6 YEARS
Figure 7.2 Diagram illustrating the review process (MG = Management Group, TC = TechnicalCommittee, SC = Site Commission)
7.3 PERFORMANCE INDICATORS FOR REVIEWING IMPLEMENTATION OF THE
MASTER PLAN
Performance indicators, or indicators of change, are the most effective tools for reviewing
the implementation progress. They allow management and decision-makers to monitor
progress and plan for mid-course corrections to programming. Indicators must be
reliable signals that tell, directly or indirectly, the real facts and answer the question:
'How do we know whether we are achieving/ have achieved our goal?'
There three types of indicators, described below.
Direct statistical indicators measuring quantifiable change in the short to medium
term.
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173
Proxy indicators - normally quantitative but not directly relating to the expected
Result, they are used when getting the full data is too time-consuming. There must
also be an apparent connection between the proxy and expected result.
Narrative indicators that focus on the 'process of change' where the expected result
may be qualitative and a non-statistical approach may be the only possible way to
develop an indication of 'progress'. They focus on what happened because of the
intervention.
Table 7.1 presents a set of basic, short-term performance indicators to start the review process
and to stimulate further thought on measuring progress in the longer term.
SMS 1 Management Structure Is the management structure formed andfunctioning? How many times have all partiesmet? Has liaison with Lahore City/Towngovernments begun?
SMS 2 Diversified Funding Has an Environmental Fund been set up?Has the Lahore Fort Heritage Fund BOG beenappointed and are funds being solicited?Have the numbers of crafts trainees stayed thesame or increased? Are sales and marketingtaking place? How many publications havebeen funded?
SMS 3 Contributions in kind Has the FOSQ generated lists of activevolunteers and contributors? How manypeople have contributed their time/ skilland/or materials?
SMS 4 Acknowledgment of Is there signage on site acknowledgingcontributors?
SMS 5 Informed management How many Master Plan seminars/presentations have been arranged? Are themain points and Action Plan translated intoUrdu?
SMS 6 Conservation training Are staff appointed and is a trainingprogramme designed? How many peoplehave attended courses and receivedcertification? Is a broad range of institutionsinvolved? Is PCI a member of the AsianAcademy for Heritage Management?
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No. Objective Performance Indicators
Scheme
Contributions
team
174
SMS 7 Identification of job skills What percentage of guards, artisans,workers and curatorial staff
have received Core Competency Training?
SMS 8 Defined job scopes What percentage of all tasks have beenrecorded as SOP?
SMS 9 Use of management tools Has LFA been employed by management?Has the first UNESCO Heritage Audit takenplace in 2007? Has a study of risk identifiedthe requirements of the site? Is there a GISmanager on site and is database designcompleted?
SMS 10 International and How many managers/ researchers haveattended regional and/or internationalprofessional meetings? Is there aninternational collaborative project at the site?
COS 1 Priorities for conservation How many Priority 1 tasks have been carriedw out? Do they account for at least 50% of works?
COS 2 Basic conservation Are full records of decision processes andimplementation available for all works? Andcomplete sets of drawings?
COS 3 Standardized and Has existing documentation been substantiallyexpanded? What percentage of all buildingsand structures has received detaileddocumentation? Has documentation ofPictured Wall begun?
COS 4 Conservation laboratory Has all old, non-functioning equipment beenreplaced? What of basic labequipment and materials has been provided?How many staff hours of training? Is the labcomputerized?
COS 5 Centralized architectural Are all architectural pieces consolidated inone place? Can individual items be retrievedby accessing a computerized register?
COS 6 Reinstallation of original What percentage of the stored elements havebeen reinstalled?
Maintenance
regional networking
orks
Procedures
ongoing documentation
upgrading percentage
storage and inventory
building elements
175
COS 7 Conservation resource Is there a set of designated shelves in theDocumentation Centre? What percentage ofthe basic resource list generated by UNESCOhas been acquired?
COS 8 Architectural crafts Has the range of artisan skills been expandedbeyond the original four? How many traineesin total and how many have graduated toworking on historic buildings? Whatpercentage are women?
COS 9 Crafts resource collection Is there a designated location for the collection?Are all major building crafts represented?
COS 10 Development and use of Is more than 70% of conservation work beingcarried out by in-house rather than contractedexpertise?
MM 1 Monitoring system Do records show that every building/structurehas been monitored at least once a month? Dochecklists reflect improvement in overallcondition? How many maintenance recomm-endations have been made? and certified?
MM 2 Maintenance system How many maintenance tasks have beenundertaken? Have all maintenance reportsmet the standards of the monitoring team andTechnical Committee?
MM 3 Monitoring of Has 100% of all conservation work beenmonitored?
MM 4 Protection of Are all exposed remains mapped & assessed?Are any still being damaged by visitor traffic?Is an archaeological monitoring programmein place?
MM 5 Cleaning of the Is regular cleaning implemented? By women?What percentage of the site has received initialcleaning? How many man days of specialistcleaning expertise has been spent ondecorative elements?
MM 6 Damage from watering Are all points of impact eliminated?
Library
training
in-house conservationcapabilities
conservation work
archaeological remains
monuments
of plantation
176
REF 1 Formulation of a Research What percentage of the items in the researchframework is being pursued by scholars?How many regional and overseas academicsare carrying out research?
REF 2 Publication programme Have basic maps and pamphlets beenproduced? How many scholarly and popularpublications are published or in progress?
REF 3 Archaeological Has geophysical survey of the site been carriedout? Have excavations been planned/implemented?
REF 4 Library upgrading Are basic technical and storage equipmentneeds met? Is the catalogue updated and beingcomputerized?
REF 5 Archival protection What percentage of glass slides has beenprinted? What percentage of material has beenscanned and catalogued? Is all materialcentrally stored?
VIP 1 Protection of fragile areas Have all identified areas been protected bydirect and/or indirect means? Is there a visitorroute plan in place? Is the study of carryingcapacity complete and have the findings beenintegrated into visitor management plans?
VIP 2 Interpreting the site for Is the Site Interpretation Study complete andplans initiated for centres and galleries? Are“themes” identified and agreed? Are theredesign standards set? Are interim display andinformation improvements all in place?
VIP 3 Museums upgrading Is a basic brochure available? Have allcloths been replaced, labels expanded andgeneral cleanliness improved? Have displaypanels been designed and/or installed? Is theinventory complete and computerized?
VIP 4 Community outreach How many heritage awareness events havebeen staged per year? How many VirsaVolunteers are assisting at the site? Havecounts of school visitation increased? Whatpercentage of school visits is involved in somesort of heritage education activity while on
Framework
investigation programme
from uncontrolled crowds
Visitors
back-
177
site? Are women being effectively targeted?
VIP 5 Reinstating links with Is the consultancy complete? Has astakeholders group been formed and areinitial steps underway?
VIP 6 Appropriate locations for How many amenities and services have beenrelocated to the British Steps? Is 100% of non-canteen food consumption restricted to theMaidan?
VIP 7 Need for Historical Site Are all events open to the public? Arein place and being enforced?
VIP 8 Adaptive re-use of Have Building Modification Briefs beenprepared for all planned re-uses?
EPI 1 Buffer Zone revitalization Has garbage collection improved measurably?Have landscaping initiatives begun? Arenegotiations underway to remove the rimmarket and other inappropriate land uses?
EPI 2 Inadequate and What percentage of parking is still in HazuriBagh? Are interim parking areas beingutilized?
EPI 3 Rerouting of traffic and Is Hazuri Bagh pedestrian only? Are stoppingand parking restrictions along the northernperiphery being enforced? Is the TrafficPlanning study complete? Has traffic beendiverted from Fort Road to the road south ofAli Park? Are plans for traffic diversion beingactively pursued with City government?
EPI 4 Controls over Is the CHIA study complete? and negotiationwith city and town authorities fortation? Are assessments beingfor on-site works?
EPI 5 Lines of communication Is the Integrated Urban Conservation Planningand Land Use Study underway or complete?Have lines of communication been set upbetween all levels of site administration andthe surrounding government bodies?
the Walled City
visitor services andAmenities
Use Guidelines
historical buildings
inappropriate parkingfacilities
creation of pedestrianonly areas
develop-ment in environs of the implemen-site carried out
between site and city/Town
Guidelines
178
EPI 6 On site improvement of Have all sources of leakage been stopped?Have stop gap measures been implemented?Is the consultancy study in progress orcompleted?
EPI 7 Improved waste removal Are upgraded bins in place and is there avisible improvement? Has a “No Litter”campaign been initiated?
EPI 8 Upgrading of toilet Are all old facilities closed and are new mobileserviced toilets in use?
EPI 9 Upgrading of electrical Have all units attached to historical fabricbeen removed?
EPI 10 Illumination for evening Has an illumination plan been agreed? Howmany evenings per week is the site open?
EPI 11 Improved security Are guard numbers increased? Has museumsecurity been out-sourced? How any VirsaVolunteers regularly patrol the site?
Drainage
facilities
Facilities
Opening
Table 7.1 Proposed performance indicators
1. Fielden, Bernard and Jukka, Jokilehto,
ICCROM, Rome, 1993.
Operational Guidelines Sections 72-79 [Format andContent of periodic reports ], UNESCO, 1999.
3. ibid., Explanatory Notes to Format for Periodic reporting on the application of the World HeritageConvention, II.6
References
Management Guidelines for World Cultural Heritage Sites,
2. World Heritage Guidelines on Periodic Reporting,
3.7
Jahangir's
(Bari)
Khw
abgah
360,0
00
6,5
45
650,0
00
11,8
18
950,0
00
17,2
73
3.8
Maghribi(W
est)
Burj
600,0
00
10,9
09
450,0
00
8,1
82
700,0
00
12,7
27
3.9
Maghribi(W
est)
Suite
50,0
00
909
450,0
00
8,1
82
3.1
0M
aghribi(W
est)
Iwans
750,0
00
13,6
36
1,5
50,0
00
28,1
82
3.1
1Z
enana
Ham
mam
700,0
00
12,7
27
550,0
00
10,0
00
750,0
00
13,6
36
4S
hah
Jah
an's
Qu
adra
ng
le
5P
aien
Bag
hQ
uad
ran
gle
6H
ath
i Rec
epti
on
Co
urt
7S
hah
Bu
rj
4.1
Shah
Jahan
'sQ
uadra
ngle
1,6
00,0
00
29,0
91
4.2
Diw
an-e
-Khass
1,3
00,0
00
23,6
36
1,3
00,0
00
23,6
36
550,0
00
10,0
00
2,1
00,0
00
38,1
82
500,0
00
9,0
91
4.3
Khw
abgah-e
-Shah
Jahani
1,1
50,0
00
20,9
09
1,7
50,0
00
31,8
18
4.4
Ham
mam
-e-B
adhshahi
2,0
00,0
00
36,3
64
950,0
00
17,2
73
1,4
50,0
00
26,3
64
300,0
00
5,4
55
4.5
Arz
Gah
130,0
00
2,3
64
520,0
00
9,4
55
800,0
00
14,5
45
5.1
Paie
nB
agh
Quadra
ngle
1,5
00,0
00
27,2
73
5.2
ImperialZ
enana
Mosque
1,2
50,0
00
22,7
27
300,0
00
5,4
55
800,0
00
14,5
45
5.3
Kala
Burj
1,6
00,0
00
29,0
91
1,6
00,0
00
29,0
91
2,4
00,0
00
43,6
36
300,0
00
5,4
55
5.4
Khilw
atK
hana
110,0
00
2,0
00
250,0
00
4,5
45
5.5
LalB
urj
1,1
50,0
00
20,9
09
1,4
00,0
00
25,4
55
2,1
00,0
00
38,1
82
300,0
00
5,4
55
6.1
Hath
iR
eception
Court
750,0
00
13,6
36
6.2
Sik
hTem
ple
100,0
00
1,8
18
200,0
00
3,6
36
6.3
South
Dala
ns
225,0
00
4,0
91
450,0
00
8,1
82
6.4
Nort
hD
ala
ns
500,0
00
9,0
91
1,0
00,0
00
18,1
82
6.5
Gor
Darw
aza
125,0
00
2,2
73
400,0
00
7,2
73
7.1
Shah
Burj
Fore
court
2,0
00,0
00
36,3
64
7.2
Ath
dara
400,0
00
7,2
73
160,0
00
2,9
09
650,0
00
11,8
18
7.3
Shah
Burj
Quadra
ngle
7.4
Shis
hM
ahalN
ort
hfa
ce
150,0
00
2,7
27
7.5
EastS
ehdara
7.6
South
Dala
ns
7.7
WestS
ehdara
Pavili
on
S75,0
00
1,3
64
7.8
Naula
kha
Pavili
on
125,0
00
2,2
73
7.9
WestS
ehdara
Pavili
on
N75,0
00
1,3
64
8.1
Shah
Burj
Darw
aza
275,0
00
5,0
00
1,0
50,0
00
19,0
91
8.2
Hath
iP
aon
&G
hula
mG
ard
ish
600,0
00
10,9
09
1,7
00,0
00
30,9
09
8S
hah
Bu
rjD
arw
aza
155
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