Advances in Social Science, Education and Humanities Research, volume 167 First International Conference on Administrative Science, Policy and Governance Studies (1st ICAS-PGS 2017) Second International Conference on Business Administration and Policy (2nd ICBAP 2017)

Analysis of Urban Heritage Management in the Heritage Area of Old-City

Diah Putri Utami Mohammad Riduansyah Anza Departement of Public Administration, Faculty of Departement of Public Administration, Faculty of Administrative Sciences, Universitas Administrative Sciences, Universitas Indonesia Depok, Indonesia Depok, Indonesia E-mail: [email protected] E-mail: [email protected]

Abstract—The Jakarta Old-City Area is a heritage, as stated by Françoise Choay, geographical spatial unit that has been appointed as 1992 (in [1]), "...heritage is finally an urban heritage of Jakarta. This study discusses the application of urban heritage management in Jakarta associated with modernity". Massive urban Old-City Area. This is related to the fact that Jakarta development can encourage the Old-City Area is used for many activities, including development and alteration of functions of conservation activities as a heritage area, so its urban spaces, including changes in urban management becomes crucial to notice. This study spatial functions that are part of the uses a post-positivist approach in which the theory of urban heritage management becomes the municipal history [3]. analytical basis of research findings. The data were One of the changes in the urban obtained from in-depth interviews, observation, and environment that needs attention is the literature study. The result of the study shows that change in cultural objects in the form of heritage management in Jakarta Old-City Area has urban objects of heritage. This is because not been optimal since the regulation system, community engagement, technical and financial basically heritage is not only a record of the managements are not integrated and still contain past—it is an integral part of the current and problems in each dimension. In the case of future urban identity [5]. United Nations regulatory systems, the absence of regulations that Educational Scientific and Cultural specifically regulate the management of the area Organization as in [19] also sees urban becomes the most important issue. Meanwhile, the lack of community empowerment, not based on heritage as important for a city both now community needs and characteristics, becomes a and in the future. Urban heritage, both problem in terms of community engagement. For tangible and intangible, is a source of social technical management, the control of the TSP and cohesion, a factor of diversity and a driver TACB to determine the outcome of efforts to of creativity, innovation, and urban maintain the value and characteristics of the Jakarta Old City as a heritage area is still not strong; in regeneration. addition, the financial management, in terms of the Although considered important, the existing financing alternatives, has not yet existence of the object and the area of accommodated the local economy and the heritage in a city is often being ignored, management activities of the area itself. even also damaged, destroyed, or lost.

Keywords—urban heritage; urban heritage UNESCO [20] argues that the world's management; Jakarta Old-City Area heritage is in jeopardy due to armed conflict and war, earthquakes and other natural disasters, pollution, individual hunting, I. Introduction uncontrolled urbanization and uncontrolled According to [18], development is tourism development. In addition, referred to as series of efforts to pursue exponential urban growth may also threaten growth and change towards modernity in a the sustainability of the historic urban planned and conscious manner. In the landscape as in [1]. On the basis of these context of urban development, one thing problems, the concept of heritage associated with modernity is the urban conservation and management emerges

Copyright © 2017, the Authors. Published by Atlantis Press. This is an open access article under the CC BY-NC license (http://creativecommons.org/licenses/by-nc/4.0/). 306 Advances in Social Science, Education and Humanities Research, volume 167

whose results are largely determined by the and included in a tentative list of UNESCO Government as the dominant actor [4]. World Heritage. The Jakarta Old City Area In Indonesia, the concept of heritage is is also mentioned in the Mid-Term synonymous with cultural heritage or Development Plan of Jakarta 2013-2017 as pusaka. Considering Indonesia is the largest part of the urban community's cultural archipelagic country with a rich diversity of development mission. Further explanation natural and cultural resources, and based on of it can be found in the Government Work Law Number 11 Year 2010 concerning Plan of Jakarta in 2017 where the cultural heritage, heritage management arrangement of the Jakarta Old City Area efforts are done by the government on became a development priority of West objects, buildings, structures, sites and Jakarta Municipal Administration region areas. The data from Pantau Pusaka considering the potential of the area. To Indonesia show that Indonesia still has a manage it, the Provincial Government of susceptible condition of heritage, among Jakarta established Area Management Unit others land use; vulnerable condition; poor (UPK) of Kota Tua Jakarta. management; ownership disputes; Nevertheless, the efforts of the Jakarta stolen/looted goods; damaged, destroyed, Provincial Government to manage the Old dirty, neglected, dismantled/destroyed, and City Area are still hampered by various sold goods [16]. Most susceptible problems. These issues include: first, the conditions of heritage can be found in Java less profitable Old City image; Second, lack Island because based on the data from the of supporting facilities in the area; Third, Ministry of Education and Culture of the the less supportive condition of Republic of Indonesia [15], Java has the infrastructure; Fourth, irregular traffic; most preserved cultural heritage, while Fifth, decreasing quality of the surrounding Jakarta is the province with the highest environment (air pollution and river water number of cultural objects of heritage, pollution); Sixth, the not yet integrated registering up to 28,237 objects [14]. While policies; Seventh, divided administrative Bandarin and van Oers assert that Jakarta as boundaries; and eighth, the defectively one of the mega cities experiences an targeted institution. In addition, the existing exponential increase in urbanization and problems are also associated with street urban growth. This is a challenge for the vendors with their buying and selling Jakarta Provincial Government to manage activities around Taman Fatahillah despite their objects of heritage. having been banned, parked cars and Based on the Spatial Plan of Jakarta motorcycles, and the behavior of visitors 2011-2030, there are four locations that who often throw away the garbage not in its become the areas of building and historical place around the Fatahillah Park as in [13]. objects restoration in Jakarta. They are the The management of Jakarta Old City Jakarta Old City Area, Menteng Area, area is also considered overlapping because Area, and House of the there is no clear division of tasks and Pitung. Compared to the four, the Jakarta responsibilities. Cleaning, security, and Old City Area received more attention from parking problems often cause a dilemma the Provincial Government of Jakarta because there is no synergy between Jakarta because it is the strategic area of socio- Provincial Government, and cultural interest that has high historical Municipal Government, and between the value and is a reflection of historical stories, administrative village and sub-district [2]. lifestyles, culture, and civilization of Ary Sulistyo as the representative of UPK Jakarta’s society in the past. The Jakarta Kota Tua Jakarta also revealed that there Old City Area has also been designated as a are obstacles faced by UPK Kota Tua cultural heritage area. At a higher level, the related to its position which is equal to sub- Jakarta Old City Area has been proposed district. Consequently UPK Kota Tua has

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limited authority to coordinate with other the local level has not always been institution which is only limited to security, accompanied by a corresponding increase cleanliness, permit, data collection, and in capacity, whether institutional, technical service of information publication. Those or financial. As a result, the market will problems are seen at the level of tend to occupy the resulting vacuum, management of the Jakarta Old City area; it causing distortions and conflicts. According cannot be separated from the great concept to Bandarin and van Oers, instead of of urban heritage management. Therefore, blaming the market, it seems more this paper is expected to provide an appropriate to take a critical look at the overview of urban heritage management in ways and means of the practice of the heritage area of Jakarta Old City. conservation, with a view to innovate and update the existing strategies and tools for urban heritage management in order to cope II. Theoretical Framework with the increasing complexity and shifting Bandarin and van Oers argue that there responsibilities. is a change in the urban heritage Bandarin and van Oers also added that management context that is influenced by the increase in complexity should be the emergence of international city- balanced by the forging of new conservation movement. Since the adoption partnerships, better institutional of the last international instrument on the coordination, and more available resources, conservation of heritage more than thirty both technical and financial. The successful years ago--a UNESCO recommendation on management of urban heritage demands a Safeguarding and Contemporary Role of robust toolkit. The toolkit for urban heritage Historic Areas in 1976--the world has management by Bandarin and van Oers witnessed a variety of external and internal should include a range of interdisciplinary changes relevant to the historic city and innovative tools, which can be conservation: a) Exponential increase in organized into four different categories. It urbanization on a global scale; b) Growing should be emphasized that for urban concern for the environment and the heritage management to succeed, the sustainability of urban development; c) The policies and actions in these four categories vulnerability of cities in terms of the impact need to be addressed simultaneously, as of climate change; d) The changing role of they are interdependent. These four toolkits cities, with ongoing market liberalisation, are regulatory systems, community decentralization, and privatisation as new engagement tools, technical tools, and drivers of development; e) The emergence financial tools. of tourism as one of the largest industries in the world; f) The changing perception of the heritage values of the city to be III. Research Method protected. These six changes overlap and This study is a post-positivist research create a complex and dynamic conservation aiming to dig information concerning environment with the growth of mutual management of heritage area. This study is relationships and the expansion of also a descriptive research based on its aim stakeholder groups, including their and purely based on its benefit, since it is competing interests. not tied to a research donor or sponsor. At the same time, in many parts of the Based on the time dimension, this is a world the responsibility for action has cross-sectional study because it is done in shifted from the national to the local level, one period of time from February to May empowering cities and regions to make 2017. This study uses qualitative data their own strategies for development. But collection technique with in-depth this increase in tasks and responsibilities at interview, observation, and literature study.

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The data obtained in this study were such as the Governor's Decree, Governor's analyzed by coding and analytical strategy Regulation, and Governor's Instruction. of the illustrative method in which urban However, all these regulations speak of the heritage management theory is illustrated preservation, regulation, and development through the management of heritage area of of the area. Until now there is no regulation Jakarta Old City. that specifically regulates the management The parties who become informants in of the area and how the management is this research are Ary Sulistyo as the staff of done. Regulation of the area management is the Unit of Service and Information from just arrived to the legal basis for the UPK Kota Tua Jakarta; Nelita as the Head establishment of the Area Management of Administration of Conservation Heritage Unit of Jakarta Old City (UPK Kota Tua Center; Jakson Sitorus as the Head of Jakarta). Micro, Small & Medium Enterprises The current regulation that is used for Sector, Department of Cooperatives, Micro, guiding the management of the area is the Small and Medium Enterprises and Trade Governor's Regulation Number 36 Year of DKI Jakarta Province; Zulfikri Alaidrus 2014 concerning the Jakarta Old City's as the Head of Sub-Division of Area Master Plan. Its management is mentioned Arrangement, Bureau of City and in article 29 and article 30. If further Environment Arrangement of DKI Jakarta observed, the regulation serves more as Province; Angie as the Project government masterplan instead of area Administrator from the Consortium of management. Two articles in Governor's Jakarta Old City; Firman Haris and Dodi as Regulation Number 36 Year 2014 are not Facilitators of Local Working Group of sufficient to accommodate the management Jakarta Old City; Ontel and Pencak Silat of the Jakarta Old City area since they more Community as Local Community of Jakarta function as management plan than show Old City; Drs. Yayat Supriatna, MSP as an how the management should be done. This academician and urban observer; Prof. Dr. issue is related to the formation of an Mundardjito as archaeologist and vice authorial body that has not been realized so chairman of Jakarta Culture Heritage Team, far; the main cause of which is due to the and some visitors and street vendors in the lack of engineering details (technical area of Jakarta Old City. details) of the Jakarta Old City's Master Plan. One thing that needs to be concerned is IV. Result and Discussion point (2) of article 29 concerning the establishment of the authorial body in the A. Regulatory System management of the area. It is a goodwill of Regulation is one form of public policy the government, since the current area which is manifested in legally and formally management unit of UPK Kota Tua has codified legislation. In managing urban limited authority, budget, and Human heritage, the regulatory systems include Resources. However, since the enactment specific procedures, and actions or of Governor's Regulation Number 36 Year decisions that are codified in the form of 2014, the establishment of the authorial legislation. The regulatory systems in the body has not been realized so far. This Jakarta Old City have been widely matter is caused by the SKPD having the stipulated in various laws and regulations. authority in regulation making: Department Since 1970s along with the increased of Tourism and Culture of DKI Jakarta. It attention from the government towards the still heavily refers to the Master Plan of the Jakarta Old City which is considered to Jakarta Old City Area. Whereas if we look have great potential for the city of Jakarta, back, the Jakarta Old City's Master Plan is a so many regulations issued at the local level grand design that needs technical

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regulations to run it, including in terms of in which both stakeholders feel that the the establishment of an authorial body. The current rules are not based on legislation establishment of new institutions requires a and the details of the provisions are still thorough assessment and involving the unclear. central government; to establish an authorial body of the Jakarta Old City area B. Community Engagement also requires assessment first. However, Community engagement in heritage when talking about the management of the management is important because it can area, both of the Provincial Government of minimize the occurrence of project defect DKI Jakarta through the Department of that targets an urban heritage. The project Tourism and Culture as well as the central defect referred here refers to the extent to government delegates all technical matters which the experts dealing with a heritage to UPK Kota Tua Jakarta regardless their project understand the important aspects of institutional limitations. This is in contrast the community before undertaking the to the conservation or utilization of the area project, including the extent to which the where almost all regulations related to the public understand the goals and objectives Jakarta Old City area is one regulating the of the project as a whole. UNESCO [19] conservation and utilization of the area. adds that along with the increasing There has been a special team authorized to perception of joint ownership of heritage or handle the two activities who are more heritage as public goods, the participatory powerful than UPK Kota Tua Jakarta. From approach in heritage management becomes here, it appears that the government is more a crucial one. likely to regulate the conservation and In general, people around the Jakarta utilization of the area than its management. Old City, especially incorporated in the The regulatory systems in managing Local Working Group has been involved in heritage area of the Jakarta Old City also managing the area. It can be seen from the appear in the form of Detail Engineering contribution given by the community, Design as the technical plan for area especially the local community that is able conservation which has not currently been to manage the information post, maintain completed, as well as Strategic Plan or the cleanliness and order, along with management plan from the owners of knowledge and experience owned by the buildings in the area. Bandarin and van community. These contributions come from Oers state that conservation and the community's own initiatives resulting in management technical plans should be seen a reciprocal relation between the as a whole and as a valuable part, unless contributions provided and the benefits the both are harmonized in an integrated way. community gains and even extends to However, the findings show that the visitors and other parties in the area such as management technical plans in the Jakarta government and the private sector. The Old City area are not in line with the benefits gained as a reciprocal result of the conservation technical plan. In addition, community's contribution are the social regulations that administer the area tend to benefits from information post and a be general regulations. This means not routine community service to clean up the merely for the Jakarta Old City area. The area; the psychological benefits from specific regulation on the area can be seen sharing historical stories and the in the form of Term of Reference (TOR) of preservation of cultural arts; and economic UPK Kota Tua Jakarta: what is allowed and benefits of additional income. The not allowed in the area as a control following fig. 1 is the community’s mechanism from UPK Kota Tua Jakarta. contributions in the form of information Uncodified TOR legally causes negative post management. responses from public and private elements

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C. Technical Tools

In managing a heritage, it is important to maintain the original values of the heritage. The process of maintaining these original values involves mostly highly

technical procedures and requires specialized knowledge and skills. Therefore, Bandarin and van Oers include technical tools as one of the categories to manage heritage. Technical management of Fig. 1. The LWG-Managed Fatahillah Park Library the Jakarta Old City area includes efforts to Regardless the community's initiative to maintain the authenticity of the architecture contribute in managing the area, the and attributes of heritage materials that government is taking various ways to exist within the area. The effort to maintain attract community engagement. Among the authenticity is done through Tim Sidang these are empowerment from central and Pemugaran and Tim Ahli Cagar Budaya. local governments are: mobilizing According to the Decree of Jakarta participation in government agenda and Governor Number 1418 Year 2014 providing information to the community in concerning Tim Sidang Pemugaran (TSP) the form of socialization, provision of and Tim Ahli Cagar Budaya (TACB), TSP signage, and speakers in the area. and TACB are not under the structure of Nevertheless, community engagement any Regional Work Unit. Both teams are has not been optimal. It is because the result the team of experts of the governor whose of government efforts to attract community secretariat is in the building of the engagement still shows a number of Conservation Heritage Center. As the name problems. First, the target of empowerment implies, these teams consist of experts in has not reached all communities or the field of architecture and archeology. elements of society and tends to be positive Both teams are tasked to escort the process on those who can support the development of renovation and conservation of buildings of tourism in the area. This is because the and establish cultural heritage status in DKI intercultural dialogue does not include the Jakarta, including the Jakarta Old City area. learning process about people’s need and During its implementation, despite the aspirations. Second, the generalization and fact that there has been a hearing, the area simplification of the meaning of community has been surveyed and has given engagement is limited to government events recommendations as to what must be and agenda, coupled with public's implemented by the applicant who wants to ignorance of official media information do the conservation: there are still changes owned by the government. In addition, occuring in terms of building materials, community engagement is also still in small facades, and colors that change the portions in a number of people. An access characteristics of the area. It is due to the for women and disability groups is also not implementation of the recommendation as seen and local communities have not been the result of the hearing process. It is finally involved in local economic development in returning to the issue of building ownership the area so that there is distrust from the in the Jakarta Old City area which includes community to the government's policies in a small portion of government-owned the Jakarta Old City. buildings, some belonging to state-owned enterprises, and most are privately owned. For example, from the observation of one of the TSP hearing, there were cases where the applicant violated the agreement that

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had been made by the TSP. The reason is buildings aimed at sustainability of the area. the color difference. The intended color Although it has been mentioned in the difference occurs in the building on Bank Detailed Regional Spatial Plans and Zoning Street as shown below in fig.2. Plans of Jakarta, its implementation is still in the planning stage. The buildings on the Kerta Niaga block under the process of conservation are those that will later apply the concept of mixed-use in the Jakarta Old City area.

D. Financial Tools

The availability of financial sources

said by Bandarin and van Oers (2012) can Fig. 2. The Building in Bank Street be very helpful in managing heritage. It is

due to the existence of financial sources, Fig. 2 shows how the building on the efforts to maintain heritage values can be Bank Street is painted bright green that done simultaneously with the development does not match the characteristics of the of urban areas. The financial sources in Jakarta Old City area. In addition, there is Jakarta Old City area are largely derived also a case of renovation that begins from the Local Government Budget of DKI without a clear permit (the building on Lada Jakarta Province and other flexible Street). financing mechanisms, including Furthermore, there has been no incentives, promotion of private Environmental Impact Assessment in investment, micro credit and public private several projects that have been partnership (PPP). The financial resource implemented in the area, especially in the from Local Government Budget of DKI settlement project in zone 2 of Jakarta Province which is allocated to UPK the area. Assessment of impacts within the Kota Tua and other related institutions can area is limited to one based on the not cover all financing needs in the area so observation from UPK Kota Tua Jakarta that financing mechanism outside the Local and it only includes the physical impact. It Government Budget is required. has not incorporated the socio-cultural Other financing mechanisms outside impacts, such as the potential gentrification Local Government Budget can help the of the area due to the positive impact of government to manage the area along with business, attractions and events as well as its development. However, the budget the negative impact of public crowd. allocated for the management of the area Meanwhile, for the renovation of buildings through UPK Kota Tua Jakarta is more within the Jakarta Old City area, it also directed to internal programs and activities does not have a specific impact assessment, of the organization. Other financing but only an effort to maintain the mechanisms such as incentives, private authenticity of architecture and attributes of investment, and PPP are linked to each building materials conducted through a other. The incentives and PPP are hearing with TSP. The impact of the stimulants for private investment into the utilization of the building after the Jakarta Old City area. However, the impact renovation also does not become the task of arising from those mechanisms has not the TSP. the utilization of buildings is left been a particular concern, such as the entirely to the owner of the building. impact of area gentrification due to the Finally, the technical management of entry of new economies with different heritage area of Jakarta Old City also characteristics from the local economy. In includes the concept of mixed-use in addition, there is a different local definition

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of the government so that the management procedures and development of the area with local Public Being the Area economic bases do not really involve local Private solution of gentrification communities around the area. Partnershi the limited and lack of From the various things that have been p budget to social sharing explained, it can be seen that each financial fund assets sources has advantages and disadvantages that are not that are summarized in the following table. owned by the TABLE 1. government Financial Advantages Disanvantages in the area Resources and can Local Government Budget make the Local Annual Budgets are area Governmen financial more allocated physically t Budget of source to to internal beautiful 1 DKI manage the organization of Summary of Financial Sources in the Jakarta Old City Area Jakarta area UPK Kota Tua Province Jakarta V. Conclusion Non Local Government Budget Incentive Become a There is no Urban heritage management in the stimulant to specific Jakarta Old City area has not been optimal attract provision to since the regulatory systems, community private encourage engagement, technical management, and investment individuals/pri managerial finance have not been in the area vate sector to integrated. In the case of regulatory develop and systems, the absence of regulation that preserve specifically regulates the management of buildings in the the area becomes the most important issue. area Meanwhile, the lack of community Private Making the Less empowerment, which is not based on Investment area alive investment community’s needs and characteristics, and empty involves local becomes a problem in terms of community buildings characteristics/ engagement. For technical management, the can be communities control from TSP and TACB to determine utilized around the area the outcome of maintaining the value and as well as characteristics of the Jakarta Old City as a issues of heritage area is still not strong. As for the investment finance of the management, the current sustainability financing alternatives have not yet Micro Facilitate The street accommodated the local economy and the Credit street vendors are not management activities of the area itself. vendors to aware of any develop microcredit their facilitation References business from the [1] Bandarin, F., & van Oers, R, The Historic Urban Landscape: Managing Heritage in an Urban government Century, Oxford: Wiley-Blackwell, 2012. and are not [2] Berita Satu, “Jadi Destinasi Wisata, Kota Tua interested in Masih Banyak Kekurangan.” Retrieved from banking http://www.beritasatu.com/food-travel/232116-

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jadi-destinasiwisata-kota-tua-masih-banyak- [11] Jakarta Provincial Government, The Decree of kekurangan.html, 2014. DKI Jakarta Governor Number 321 Year 2016 [3] Carmona, M., Tiesdell, S., Taner, O., & Heath, concerning the Establishment, Organization and T, Public Places – Urban Spaces: The Working Procedures of the Area Management Dimension of Urban Design, Oxford: Unit of Jakarta Old City, 2016. Architectural Press, 2003. [12] Jakarta Provincial Government, The Decree of [4] Gilmour, T, Sustaining Heritage: Giving the Past DKI Jakarta Governor Number 121 Year 2016 a Future. Sydney: Sydney University Press, concerning the Local Government Work Plan, 2007. 2017. [5] Global Development Research Center, [13] Ikatan Peneliti Lingkungan Binaan Indonesia, “Prioritizing Cultural Heritage in the Asia- “Kota Tua Jakarta: Melangkah Menuju Urban Pacific Region: Role of City Governments.” Heritage Peringkat Dunia.” Retrieved from Retrieved from http://iplbi.or.id/kota-tua-jakarta-melangkah- http://www.gdrc.org/heritage/heritage- menuju-urban-heritageperingkat-dunia/, 2015. priority.html, 2015. [14] Ministry of Education and Culture, Pendaftaran [6] Jakarta Provincial Government, APBD Provinsi Objek Berdasarkan Provinsi. Retrieved from DKI Jakarta. Retrieved from http://cagarbudaya.kemdikbud.go.id/siteregnas/, http://apbd.jakarta.go.id/pub/2017/2/3/giat/list?c 2016. d=dW5pdD0xLjE3LjAzMw==, 2017. [15] Ministry of Education and Culture, Peta [7] Jakarta Provincial Government, Regional Penetapan Cagar Budaya. Retrieved from Regulation of DKI Jakarta Number 1 Year 2012 http://cagarbudaya.kemdikbud.go.id/siteregnas/ concerning Jakarta Spatial Plan 2030, 2011. public/peta, 2016. [8] Jakarta Provincial Government, Regional [16] Pantau Pusaka Indonesia, Preserved and Regulation of DKI Jakarta Number 2 Year 2013 Endangered Heritage Report. Retrieved from concerning Local Government’s Medium-term http://heritageinventory.web.id/, 2016. Development Plans of Jakarta 2013-2017, 2013. [17] The Republic of Indonesia, Law Number 11 [9] Jakarta Provincial Government, Regional Year 2010 concerning Cultural Heritage, 2010. Regulation of DKI Jakarta Number 1 Year 2014 [18] Tjokroamidjojo, B, Pengantar Administrasi concerning the Detailed Regional Spatial Plans Pembangunan. Jakarta: LP3ES, 1974. and Zoning Plans of Jakarta, 2014. [19] United Nations Educational Scientific and [10] Jakarta Provincial Government, The Decree of Cultural Organization, New Life for Historic DKI Jakarta Governor Number 36 Year 2014 Cities. Paris, 2013. concerning Master Plan of Jakarta Old City, [20] World Heritage Center UNESCO, World 2014. Heritage in Danger. Retrieved from http://whc.unesco.org/en/158/, 2016.

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