Conservation Management Plan

Na Khang – Na Kout Historical Landscape

Viengthong District, Houaphanh Province, Lao PDR

Draft – March 2011

Prepared by Rik Ponne, International Team Leader GMS Sustainable Tourism Development Project in Lao PDR Table of Contents

Part 1 – The Site ...... 2 1.1: Description of the Na Khang - Na Kout Historical Landscape ...... 2 Brief history of Na Khang (LS-36) during the Second Indochina War ...... 3 Na Khang today ...... 6 Ban Na Kout ...... 8 1.2: Significance ...... 9 1.3: Current issues and threats ...... 9 Community situation ...... 9 Infrastructure ...... 9 Environment ...... 10 UXO risk assessment ...... 10 Cultural heritage ...... 10 Part 2: The Plan ...... 12 2.1: Objective of the Plan ...... 12 2.2: Heritage Management ...... 12 Legal protection ...... 12 Management structure ...... 12 Heritage management indicators ...... 13 Financial Structure ...... 14 Boundaries and Zoning ...... 14 Conservation approach ...... 16 UXO risk management ...... 18 Community heritage awareness ...... 18 Interpretation and Presentation ...... 18 Infrastructure ...... 19 Knowledge development...... 20 Human resource development ...... 20 3: Making things happen ...... 21 4: Action Plan ...... 21

Appendices: 1. Heritage Management Indicator Matrix 2. Juxtaposed historic and recent photographs 3. Law on National Heritage (Lao version and English translation)

Part 1 – The Site

1.1: Description of the Na Khang - Na Kout Historical Landscape

Ban Na Khang and Ban Na Kout are two neighboring villages located in the Tham La cluster of villages in Viengthong District, Houaphanh Province, northeastern Lao PDR. Ban Na Khang became the site of an important military base during the Second Indochina War. Ban Na Kout villagers went into hiding in the forest during the war, while Ban Na Khang villagers were evacuated to Vientiane Province when the base was overrun for the first time in February 1966. Once peace returned to the area, villagers from Ban Na Kout have returned and rebuilt their village while Ban Na Khang has not been re-established. It is Ban Na Kout that is now associated with the war relics in the Na Khang area.

To Luang Prabang

Viengthong 1c Town

To Xam Neua/ Nam Nern Ban Viengthong

Ban Poung Hai

Ban Phou Louang

To Phou Koud Houay Siap District, Xieng Khouang Ban Phou Dan Tad Lom Viet Cave Old Viet Road 5km

Destroyed Equipment 2km Old Na Khang 5km Airbase

Na Kout Village Na Kout Community Lodge

Nam Vang

Distances: N 27km Viengthong Town to Ban Na Kout Ban Thamla Tai 32km Viengthong Town to Ban Na Kout via Ban Thamla Temple ruins 7km Viengthong Town to Ban Poung Hai turn-off Ban Thamla Neua 2km Ban Na Koud to Old Na Khang Temple ruins Airbase 5km Old Na Khang Airbase to Tad Lom

Figure 1 – Location map of the Na Khang - Na Kout Historical Landscape in Vientghong District

Brief history of Na Khang (LS-36) during the Second Indochina War

The Na Khang area has been of strategic importance during both the First and Second Indochina Wars. It were the French who first used the long and wide valley to construct an airstrip, but it was during the Second Indochina War that the site saw most of the action when it functioned as an important support center and forward operating location for the Royal Lao Government (RLG) supported –covertly- by the USA and Hmong paramilitaries (also referred to as the Secret Army) to attack Pathet Lao controlled areas in the northern provinces, particularly Houaphanh. Figure 2: Bird’s eye view of Lima Site (LS) 36 taken in 1968 The base was known by the Americans as Lima Site (or LS) 36. The term "Lima Site" was derived from the American acronym for map designations of "Landing Sites" within the Secret War zone of the Second Indochina War, which included Laos.

Air America was an American passenger and cargo airline covertly owned and operated by the CIA. It supplied and supported United States covert operations in Southeast Asia during the Second Indochina War, including Laos where it inserted and extracted U.S. personnel, provided logistical support to the Royal Lao Army (RLA) and Hmong paramilitaries under command of Army Major General Vang Pao and transported refugees. 1 Records show Air America flew to Na Khang (LS 36) and Long Cheng (LS 20A, the largest and most important CIA operated airbase in Laos) for the for USAID’s Public Works Division as early as 13 June 1965.2 “In late 1965, USAF HH-3E “Jolly Green Giants” had been based at Na Khang (LS-36) for Search and 3 Figure 3: T-28 crashed at Na Khang (LS-36) Rescue duties” , confirming US Air Force operations in the area.

1 Wikipedia: Air America (Airline), http://en.wikipedia.org/wiki/Air_America_(airline) 2 Air America in Laos I – humanitarian work, Part I, by Dr. Joe F. Leeker 3 idem

U.S. records of air incidents in Laos between 1960-19694 list several involving Air America and U.S. Air Force aircrafts, including hits, crashes and mechanical problems, at, near or en-route to or from Na Khang in the period 1965-1969, indicating LS 36 was a regular destination.

The Raven Forward Air Controllers, also known as The Ravens, were fighter pilots used in a covert operation in conjunction with the CIA in Laos during the Second Indochina War. The Raven program was officially founded on in May 1966. In November 1964, Roy Dalton was the first rated officer to augment the Butterflies, a predecessor of the Ravens. He Ban Na Kout Villagers recall Vietnamese road was stationed at LS 36 from where he directed construction near Na Khang air strikes by the Royal Laotian Air Force while

riding in Air America helicopters, or from Villagers from Ban Na Kout recall that between 1967 to 5 early 1969, North Vietnamese troupes were making a observation posts on mountaintops. In his road approaching from the north. This road crossed the book The Ravens: pilots of the secret war in Houay Siep stream located only 2.5 km from Na Khang. Laos, Christopher Robbins describes a crash at Here the stream flows through jungle and has etched a Na Khang of a USAF U-17 modified to carry steep valley dropping some 140m below the smoke rockets used by the Ravens.6 surrounding land. This winding road was cut into the steep slopes on each side of the stream, turning back “LS-36, Na Khang, one of the major strips north on itself some 6 times on each of the sides of the valley. of the PDJ [Plain of Jars, sic], was lengthened Villagers say that the Vietnamese cut the road under and rebuilt at one time by USAID/PWD people. the cover of darkness without using lights. Villages also A small bulldozer was dismantled and flown in can point out a cave/rock-ledge where they say that the 7 Vietnamese hid during daylight hours. Amazingly this to 36 to do the job.” Interestingly, derelict and was taking place so close to Na Khang. destroyed road work equipment can still be found next to the airstrip. Villagers can still point out the overgrown road that they call “Thang Viet” (Vietnamese Road); the rock LS 36 was overrun twice by Pathet Lao forces. ledge cave they call “Tham Viet” (Vietnamese Cave); The first time was in 1966 and the base was and the main camp site that they call “Samnak Viet” bombed using T-28s and completely destroyed (Vietnamese Camp). All of these sites are in a jungle to keep any resources there from being used by clad valley about 1 hr walk from the old airbase. the Pathet Lao.8 RLG forces recaptured the site

(Source: Interview with Ban Na Kout villagers by Jim Johnston, 26 the same year. After continuous attacks during February 2011) February 1969 which weakened defenses, Pathet Lao forces (supported by North Fall of Nakhang following a surprise attack Vietnamese) approached the base from a “completely unanticipated direction that caught During previous years an attack was always anticipated the garrison by surprise”9 and captured it for to come from this forested area and airpower was used the second and final time on 1 March 1969, against this approach. Finally, a Vietnamese regiment causing “heavy RLG casualties including the approached the Na Khang base from a different, 10 unanticipated direction under the cover of elephant military commander and the governor.” Again, grass rather than forest and the base was over-run on the base was destroyed by the retreating RLG 1st March 1969. troops (including 4,000 Hmong) to prevent them from falling in Pathet Lao hands and US (Source: Conboy, “Vietnam and Laos”) personnel were airlifted out.

4 http://www.angelfire.com/home/laoslist/crl60.html 5 Wikipedia: Raven Forward Air Controllers, http://en.wikipedia.org/wiki/Raven_Forward_Air_Controllers 6 AIR AMERICA: CESSNA U-17s by Dr. Joe F. Leeker 7 Air America in Laos I – humanitarian work, Part I, by Dr. Joe F. Leeker 8 An Interview with Ernest C. Khun, United States Foreign Assistance Oral History Program, 1995 9 Conboy, “Vietnam and Laos” 10 Personal account of MacAlan Thompson reproduced in Air America in Laos I – humanitarian work, Part I, by Dr. Joe F. Leeker

Figure 4: LS 36 Na Khang (Source: Air America in Laos I – humanitarian work, Part I, by Dr. Joe F. Leeker)

Air America’s Charley Moseley recalls LS-36 Fuel drums and sheet metal

Fuel drums were often used as “LS-36, was located some 40-50 miles North of the PDJ (Plaine de construction material after they Jarres) and across a beautiful little river from the main village of Na had been flattened. Former Air Khang. In standing on the finely engineered foot bridge over that America pilot Joe Hazen recalls: stream; one was reminded of fly fishing on the lovely Elk River of “The last time I flew *Caribou+ southwestern Oregon. 392 was on 22 December 1965.

I was bringing a load of sheet Na Khang was the hub of our war efforts north of the PDJ, and a real metal from LS-36 (flattened "melting pot" in bringing together our various partners such as Vang gasoline drums) to either LS-20 Pao with his Meo, Kong Le with his neutralists and the USAF with their or 20A [Long Cheng] when the big and bigger SAR choppers to hopefully retrieve some of our lost right engine failed and I had to "whistling T-28" pilots. shut it down. The load was quite … heavy and we were losing The landing strip at 36 was a little short, but fine for our Caribous; if altitude, so I had the load you could successfully ease over the top of that last limestone karst jettisoned and proceeded to mountain; flutter down the steep slope with full flaps and the stall Vientiane. When the load was warning horn screaming--give a little jolt of power to get over that last jettisoned, the flattened sheet 51 deep irrigation ditch--then slap both props into full reverse a metal sailed through the air, couple feet off the ground--and hope no people or water buffalo had twisting and turning and acting wandered out onto the runway since your over flight five minutes ago. like a scythe when it hit the ... jungle. There never was a report During the dry season of 65-66, Tony Poe and associates decided they of any damage from any of the needed C-123 flights into LS-36. They proceeded to elongate the strip, villages, so I guess the area was fill in the ditches and use C-4 to cut down most of the trees up to the uninhabited.” top of the mountain which blocked any decent approach. The finished

product looked real cute from 8,000' up, but ugly as sin face on.” (Source: Source: Air America in Laos I – humanitarian work, Part I, by Dr. (Source: The First C-123 Into LS-36, Mosely, http://www.air- Joe F. Leeker) america.org/Articles/Moseley-1.shtml)

Na Khang today

As mentioned above, the village Ban Na Khang was not rebuilt after the war. However, evidence of the former military base can still be found in the Na Khang area. The airstrip (LS-36) is still clearly visible (particularly from the air). Along the southern side of the airstrip, three 10,000 liter fuel tanks can be found and across the airstrip towards the north are scattered the remains of road work equipment brought in to improve and extend the airstrip. Oil tanks and road work equipment have been rendered unusable by the fleeing troops when the base was captured by Pathet Lao forces in 1969. Further north, hidden in the overgrowth, a shell launcher and its trailer (from which it was separated by people trying to –unsuccessfully- take the equipment to sell it for scrap) are located.

The following is a complete list of war relics that have been identified in the Na Khang area:  Airstrip 1,500 m long  Fuel tanks (10,000 l) 3 psc.  Bulldozer 1 psc.  Front end loader 1 psc.  Pad foot roller 1 psc.  Grader 1 psc.  105 Shell Launcher 1 psc. (launcher and trailer are separated)

The area is highly contaminated with UXO, including stocks of ammunition that have not been destroyed by the fleeing troops and unexploded ordnance left over from the shelling of the site and ground battles.

Figure 5 –Na Khang area showing location of main features

Figure 11 - 1,000 liter fuel tanks Figure 10 - Bulldozer

Figure 8 –Front end loader Figure 7 –Shell launcher

Figure 6 – Recycled airplane part

Figure 9 – Shell casings reused to construct a staircase to Ban Nakout’s village temple

Ban Na Kout

Ban Na Kout is located in the same valley as Na Khang, Na Kout villagers recall hiding in the approx. 1 km to the southwest. It was established in 1865 forest when seven families moved there from Xieng Khouang

Province. The village is 100% Tai Phuan and practices “We had to resort to eating wild vine Buddhism. It now comprises 93 households and has a tubers as a replacement for rice, which population of 665 (of which 331 are female). The main we were unable to grow during that occupation is rice cultivation, with a number of households period. We could only cook around 6 also involved in raising livestock and the production of o’clock in the morning when fog provided handicraft, such a sericulture, silk and cotton dyeing, using cover. We saw planes every day. If we natural dyes and weaving, blacksmithing and bamboo would cook during the night the light basketry. would attract attention and during the day smoke would give us away, risking aerial attacks on their forest hideout from In 1964, when the Na Khang area became an important planes taking off from Na Khang.” military base for the RLG, Na Kout villagers abandoned their homes and hid in the forest where they remained until 1969 (Source: Interview with Ban Na Kout villagers by Jim when the Na Khang base was captured and permanently held Johnston, 26 February 2011) by the Pathet Lao forces until the end of the conflict. In 1966, at the time when the base was overrun for the first time by Pathet Lao forces, the villagers of nearby Ban Na Khang were evacuated to Vientiane Province and other RLG controlled areas.

When the people of Ban Na Kout returned to their village, they rebuilt it using left-overs from the war from the Na Khang area. Flattened oil drums were used as wall and roofing material for their houses and rice stores and to construct garden fences. Bomb shells were used as posts. And the steps to the village temple were made using shell cases placed front-side down in the soil. Villagers have also ingeniously reused airplane parts, ammunition cases, shell Figure 12 – vernacular Tai Phuan architecture and cases, bomb shells and other small objects to make recycled war material in Ban Na Kout household tools and agricultural equipment, storage containers etc. Much of this can still be found in the village today.

While most of the houses in Ban Na Kout are built in a more generic Lao timber frame style, a few traditional thatched roofed Tai Phuan houses remain. There are only a few brick houses in the village.

Traditional Tai Phuan culture (expressed in dress and hairstyle, lifestyle, social structure) appears to be valued and perpetuated in the village.

Figure 13 – Flattened oil drums reused as fencing Figure 14 – Ban Na Kout’s temple, constructed using recycled material in Ban Na Kout flattened oil drums as roofing material and wall panels

1.2: Significance

Na Khang played a central role in the Second Indochina War as an important support center and forward operating location for the Royal Lao Government (RLG) supported by the USA and Hmong paramilitary to attack Pathet Lao controlled areas in the northern provinces, particularly Houaphanh. LS-36, as the Americans referred to the landing strip, is often mentioned in US war records alongside LS-20A at Long Cheng, Na Khang’s larger and better known equivalent located south of the Plain of Jars. The primary significance of the Na Khang – Na Kout Historical Landscape lies in its ability to provide evidence of, and illustrate, important events of the Second Indochina War, particularly related to USA involvement in Laos.

The reuse of war material in Ban Na Kout is an excellent example illustrating the resilience and ingenuity of the Lao people under circumstances that were created by forces beyond their control. The scale at which war material was reused in Ban Na Kout and high level of integrity make this site highly suitable to interpret this phenomenon adding to the significance of the Na Khang – Na Kout Historical Landscape.

1.3: Current issues and threats

Community situation

Ban Na Kout is part of the Tham La cluster of villages, which also comprise Tham La Neua and Tham La Tai. Because of its proximity to the former army base (approx. 1 km), it is Ban Na Kout that is most directly associated with the war relics of the Na Khang (LS 36) area and is responsible for looking after the site. It will also be the primary focus for tourism development in the area. However, if demand is proven, other villages in the Tham La cluster can, in the future, also be involved. For example, in Tam La Tai, there are remains of a six hundred year old temple complex, bombed in 1966, with interesting stories associated with them and quite a lot of remaining physical. Villagers also do sericulture, weaving and blacksmithing.

It is clear that the public awareness and understanding of the significance of the Na Khang –Na Kout Historical Landscape is crucial to the preservation of the site. Without this understanding and support of the local communities, efforts to manage and conserve the sites cannot be successful. Most people in Ban Na Kout aged 45 years or older will have memories related to events at Na Khang, and villagers of all ages are reminded of the war every day by the objects that have been recycled for house construction, food storage, tools etc. and, most significantly, when encountering UXO. However, they may not necessarily be aware of the significance of the site and its importance as a place to interpret the events associated with the Secret War in Laos. Considering the important role for the villagers in protecting and preserving the site, efforts to raise this awareness among the people of Ban Na Kout should be prioritized.

Giving the site economic value for local people through culture and history tourism will likely increase the efforts by the local people to maintain the site.

Infrastructure

Ban Na Kout is not connected to the power grid but is generating electricity using small hydroelectric generators placed in the nearby stream. The village does have water supply. Mobile phone coverage is limited.

Total travel distance from Vienthong Town to Ban Na Kout is 27 km. To travel to Ban Na Kout, one takes the road out of Viengthong town south in the direction Phoukout District of Xieng Khouang Province. After 7 km (of which only the first part is sealed), in Ban Phoung Hai, a smaller road turns off to the left connecting to the Tham La area, first passing Tham La Neua and Tai before looping to Ban Na Kout. This

rudimentary road was constructed in 2005 by the Lao Government. Ban Na Kout villagers cut a shortcut connecting their village to this new road, cutting travel distance to Viengtong Town by 5 km. Five rainy seasons later, the road from Ban Phoun Hai to the Tham La area is rather dilapidated, making navigating it difficult (particularly during the rainy season) and time-consuming. The Lao Government has plans to bring electricity to the Tham La area in the near future, and to improve the road at the same time, but exact dates for this project are not yet available.

Environment

The Na Khang – Na Kout area is dominated by wet rice cultivation irrigated by a stream (the Nam Vang) swirling through the valley. Lush vegetation covers the hills surrounding the valley, although some evidence of past slash and burn activity. Generally, the environment can be described as attractive, particularly when the rice paddies are green. When tourism takes off, or when populations increase, development pressures may increase. In order to ensure preservation of the environment into the future, enhancing environmental awareness and environmental management strategies should be included in development plans for the area.

UXO risk assessment

Several attempts by Pathet Lao forces to capture the army base at Na Khang (the last one, in 1969, which was successful) involved extensive, heavy ground battles. The unexploded ordnance left over from these battles, together with the remains of large stocks of ammunition kept on the site by the Americans, has resulted in a high level of UXO contamination of the area. UXO found at the site include bombies, mortar rounds (81, 82 and 105), 105 shells (“soka”), bazooka rockets, grenades and other ammunition. UXO continues to harm people during their agricultural and construction activities. In 2008, a UXO visual clearance project was completed that focused on UXO at the surface. Currently, UXO Lao is conducting deep clearance of priority areas in and around Ban Na Kout and the Na Khang area.

An additional livelihood activity of the people of Ban Na Kout is the collection of scrap metal in the Na Khang area. In the past, all metal found by the collectors, including UXO, was moved to the village for further processing. Around 2008, this practice has resulted in a serious accident in the village which caused the loss of life of ten people and injured many more. Following this incident, all UXO stored in the village was returned to the site. However, scrap collection is still an important activity of the villagers, and evidence of ongoing collection is evident. While UXO encountered during the collection is no longer moved to the village, it is left exposed on site, a situation particularly hazardous for children who may not realize the dangers and play with UXO. The current UXO clearance project will probably remove the exposed UXO, but with the ongoing scrap metal collection, once the UXO project is finished, it is likely that exposed UXO will remain a problem.

Cultural heritage

Besides the historical heritage related to the Second Indochina War, Ban Na Kout has been able to keep its Tai Phuan ethnic heritage alive. Most villagers’ dress and hairstyle are traditional, and while most houses are not necessarily vernacular Tai Phuan style, they do include some traditional features. The few traditional Tai Phuan houses that remain, however, seem to be at risk of being replaced with new, modern structures. Village elders appear to value their cultural heritage and may be able to persuade these house owners to retain their houses, particularly now that there is an understanding that these features may help develop tourism in the area. Social structure and cultural activity continue to be strong.

Exposure to other cultures and lifestyles through tourism activity has the potential to increase the speed of cultural change. Attention needs to be given to ensure that the people of Ban Na Kout are aware of this issue and decide what level of change is acceptable to them and at what rate. When planned well,

tourism can also contribute to cultural survival and revival, and this is something that should be taken into account when developing tourism activities.

Human resources

Houaphanh province has no trained heritage managers or object conservators. Local capacity will have to be built to implement the recommendations in this plan for the conservation of the war relics in the Na Khang – Na Kout Historical Landscape.

Part 2: The Plan

2.1: Objective of the Plan

The objective of the Na Khang – Na Kout Historical Landscape Conservation Management Plan (hereinafter referred to as “The Plan”) is to present a practical community-based heritage conservation and management approach. The Plan is to be used as a manual to guide local government and local communities on how to protect, conserve, present and manage the site and its essential values which give the site its significance.

Considerable experience exists in Lao PDR and in particular in Xieng Khouang with integrated or holistic approaches to heritage management. Building on this experience and replicating best practice developed in the country would give interventions a high chance of success. Demonstrating the replicability of the best-practices may contribute to mainstreaming these approaches into national policy.

The ultimate goal for the Na Khang – Na Kout Historical Landscape is to fulfill its potential -that is, be a resource for ongoing research, interpretation and presentation to the public of a significant period in Laos’ history and pro-poor economic development.

2.2: Heritage Management

Legal protection

The Lao PDR National Heritage Law (annexed) came into effect on December 9, 2005. It guarantees a basic protection for all sites of cultural, natural and historic heritage significance. The law recognizes national heritage at three levels: local, national and world levels. The Law states that at heritage sites, socio-economic development shall proceed in tandem with preservation and conservation of the sites, and that it promotes the participation of individuals and organizations in the protection, conservation, restoration and rehabilitation of the national heritage in a sustainable manner. The Law further states that it also promotes research, innovation and advancement regarding national heritage.

In order to formalize protection of the site, it is recommended to nominate the Na Khang – Na Kout Historical Landscape as National Historic Heritage at the local level with the Provincial Department of Information and Culture in Xam Neua.

It is important that those involved in the management and development of the site familiarize themselves with the provisions of the Law.

Management structure

Involvement of local communities in the protection, management and development of heritage sites is part and parcel of the management system for the Plain of Jars Archaeological Landscape, a prospective World Heritage site just 50 km south of the Na Khang – Na Kout Historical Landscape. The concept of community management of heritage is originally modeled on the Heritage Awareness Through Community Outreach (HATCH) programme which was established in 1997 for the preservation of Vat Phou (an archaeological landscape in southern Laos PDR inscribed on the World Heritage List in 2001) and was further defined under the UNESCO-Lao Safeguarding the Plain of Jars project in 2008. The main objectives of this programme are to increase community awareness about the significance of the site,

acquire community involvement in the conservation and utilization of the site and introduce the community to the Conservation Management Plan.

Community based heritage management is equally to be established for Na Khang – Na Kout Historical Landscape. The remoteness of the sites and the poverty of the nearby communities make it an excellent candidate to replicate the model. Stakeholders at all levels are to be involved in the management, with local communities playing an essential role in protection, maintaining and managing activities at the site. Such an approach is in line with the Law on National Heritage, which lists the responsibilities of the Information and Culture sector at National, provincial and District levels as well as the rights and duties of the Village Administrations regarding National Heritage.

The respective responsibilities of each stakeholder are defined as follows:

Ministry of Information and Culture: Although the site falls under the responsibility of the Houaphanh Provincial Department of Information and Culture, the Ministry is responsible for enforcing heritage laws and provides technical assistance and training to the province, district and village where and when necessary in the protection, conservation and management of the site. It is the MIC’s responsibility to assist the local government in scientific research, in the dissemination of culture, attracting funds and in other activities.

Provincial Department of Information and Culture: According to the Heritage Law, the Provincial Department is responsible for the approval of maintenance, restoration and rehabilitation of sites listed at the local level. In this case, it is their duty to monitor the community based management of the site, assist with the interpretation of the site to visitors and define and monitor the protective zoning for the site.

Provincial Tourism Department: The department has prioritized the site for pro-poor sustainable tourism development and is responsible for providing the usual technical assistance, control and promotion.

Viengthong District Office of Information and Culture: The District Information and Culture office has the duty to support the Provincial Department in the implementation of monitoring, research and conservation efforts and reports urgently to the Department in case of protective zoning breaches or other non-compliance of management or protective measures. The district has a responsibility to teach Ban Na Kout about their role in protecting the site and assist them in implementing the conservation recommendations in The Plan. The District is in direct contact with the villagers and liaises closely with the Provincial Department. A Tourism Officer based at the District Information and Culture office is the link between the villagers and Provincial Tourism Department and has the responsibility to support the tourism activities around the site.

Ban Na Kout: The community based management approach hinges on active participation of the villagers of ban Na Kout in the preventative conservation of war relics, vegetation and trail maintenance, rubbish control, security, prevention from looting, collection and administration of entrance fees and maintenance of signage and interpretation panels. In addition, the villages will be responsible for the operation of community-based tourism activities at the site.

Heritage management indicators

In order to monitor impacts on the heritage resource as well as the implementation of this Plan, an indicator matrix has been developed listing indicators, standards, and management actions to address issues when the standards are not being met, under the following headings:

- Impact on cultural heritage values - Violation of zoning regulations - Implementation of maintenance regime - Appreciation by and satisfaction of visitors - Interpretation materials - UXO risk management - Human resource development

The matrix is attached as Appendix 1. It is recommended that these indicators are monitored annually.

Financial Structure

There is currently no revenue generated at the Na Khang – Na Kout Historical Landscape. In order to finance regular monitoring, maintenance, conservation, research and information promulgation it is essential that funds are generated to pay for these essential activities.

Capturing part of the income from tourism for reinvestment into the heritage resource has been successfully tested in a number of places in Lao PDR. First piloted in Luang Namtha province, this model was successfully replicated at heritage sites in Lao PDR, including the Plain of Jars Archaeological Landscape. If the recommendations of this Plan are to be implemented sustainably, it is essential that such a system is developed for the Na Khang – Na Kout Historical Landscape. Possible methods of capturing income are through an entrance ticket system and retaining a portion of the payment received for community provided services. Income should be deposited into a special fund which can be used only for the conservation and management of the site. The establishment of such a fund and the mechanism for income generation should be prioritized.

Boundaries and Zoning

Definition of a boundary and protective zones is necessary to protect, conserve and preserve the integrity of the landscape while at the same time taking in account realistic future development needs.

Article 43 of the National Heritage Law identifies three different zones generally applicable for cultural and historical heritage sites, as follows:

• Zone 1 is the central area, where the heritage is located, which must be protected in its original circumstances and where no construction is permitted; • Zone 2 is the area surrounding the central area, where some activities are permitted to increase the value of zone 1, provided that no damage shall be caused to that surrounding area; • Zone 3 is the administrative area where construction is permitted to serve zones 1 and 2 for the accommodation of tourists.

The boundary and zones for the Na Khang – Na Kout Historical Landscape have been defined in accordance with the above scheme, as follows:

Zone 1a – Core Zone: 100 m surrounding key war relics of LS-36 Zone 1b – Core Zone: 100 m surrounding Ban Na Kout Zone 2 – Buffer Zone, comprising the extent of the valley in which LS-36 is located and Ban Na Kout’s vistas over the adjacent rice paddies Zone 3 – Tourism Service Zone, comprising of the area allocated for a community lodge in Ban Na Kout

Figure 15 – Zoning for the Na Khang – Na Kout Historical Landscape

Figure 17 – Zone 1b and Zone 3 Figure 17 – Zone 1a

The zoning maps and regulations should be made public and distributed to the relevant stakeholders.

The proposed rules and regulations for the three zones are as follows:

Table 1 - Na Khang – Na Kout Historical Landscape zones

Zone Area Purpose Regulations 1a- Core Zone 100 m surrounding key Protection and No construction permitted. No war relics of LS-36 conservation and agricultural activities or wood presentation to visitors of collection allowed. No damaging, the war relics related to LS- moving or removal of 36 (Na Kout) relics/artifacts. No interpretation infrastructure allowed in this zone. No parking of vehicles. 1b- Core Zone 100 m surrounding Ban Na Protection and Preservation of (i) all structures Kout conservation of and (including houses, fences, temple presentation to visitors of buildings, rice storages, staircases war relics in Ban Na Kout etc.) containing war material (such as flattened oil drums, bomb shells etc.) and (ii) traditional Tai Phuan houses. These structures are to be conserved in their original/current state and cannot be replaced. Other development/change is allowed as long as it does not impact on the preserved structures or the general picture of the village. No buildings higher than two floors allowed. Modest interpretation infrastructure allowed in this zone. No parking of vehicles. 2 – Buffer Zone Buffer Zone, comprising Protection of the No construction permitted except the extent of the valley in immediate context and for those related to the normal which LS-36 is located and setting of the heritage activities of the people of Ban Na Ban Na Kout’s vistas over resources in Zones 1a and Kout (such as agriculture). On-site the adjacent rice paddies 1b and on-site interpretation of the war-relics and interpretation to enhance the local history and culture are visitor understanding and allowed in this area as long as the experience required interpretation infrastructure is modest and does not negatively impact on the values of Zones 1 and 2. Parking of vehicles allowed in designated areas. 3 – Tourism Tourism Service Zone, Provide accommodation for Construction allowed of community Service Zone comprising of the area tourists who visit the site as lodge and related facilities. Parking allocated for a community part of a multi-day of tourist vehicles allowed in lodge in Ban Na Kout programme designated area.

Conservation approach

In order to retain the integrity of the site, the overall conservation approach for the Na Khang – Na Kout Historical Landscape is to protect and preserve remaining war relics in situ (i.e. keep and conserve what is left in its original location). This will provide the best option to continue to research the site and interpret its history to visitors.

Old airstrip

The former air strip is still clearly visible on aerial photos from the Na Khang area. However, visitors may easily miss it as vegetation that has encroached onto the strip has made it somewhat difficult to understand the location and extend of the air strip. It is recommended that vegetation is cut so that the airstrip is again discernable by tourists. Furthermore, no agricultural activity or construction should be allowed on or immediately around the airstrip in order to retain its integrity.

Iron objects

Iron objects include:  Fuel tanks (10,000 l)  Flattened oil drums (used for roofs and walls of houses, rice storages and for fences)  Small objects kept in people’s homes such as ammunition cases etc.

The primary cause of deterioration of exposed iron is corrosion. Moisture, even that in the air, can accelerate corrosion, and over time will cause considerable damage. Conservation strategy: slow down the rate at which the corrosion process takes place by keeping iron surfaces as dry as possible. Specific actions to be taken include: Drying oil  Clear the objects from vegetation  Allow sufficient airflow around them so that they As suggested in the text, for the will dry quickly when they have become wet (e.g. conservation of iron and steel objects, a ensure rain water can easily drain away and air can drying oil should be used. A drying oil is flow freely around flattened iron oil drums) an oil that hardens to a tough, solid film after a period of exposure to air. The oil  For objects touching the ground (such as the oil does not harden through the evaporation tanks and some oil drums used for fences), ensure of water or other solvents, but through a rain water is diverted away from the objects (by chemical reaction. digging small drainage canals).  Regularly spray or paint anti-rust and corrosion The best option for the conservation of fluid (oil) on the exposed surfaces (e.g. annually, iron and steel objects is shark oil (such as just before the rainy season) which will fill the “Coating Fluid Anti Rust & Corrosion”, pores and provide a protective layer which is a lubricant spray produced by Mako in Queensland, Australia, www.mako-tek.com). Alternatively, if this Steel objects is not available and cannot be obtained, linseed oil may also be used instead. Steel artifacts include:  Bulldozer  Front end loader  Pad foot roller  Grader  105 shell launcher (launcher and trailer)

Steel has a relatively slow rate of deterioration, but is also affected by corrosion. Conservation strategy: slow down the deterioration process by keeping steel surfaces as dry as possible. Specific actions to be taken include:  Clear the objects from vegetation  Ensure rain water is diverted away from the objects (by digging small drainage canals). There is no need, however, to excavate the buried parts.  Regularly spray or paint anti-rust and corrosion fluid (oil) on the exposed surfaces (e.g. annually, just before the rainy season) which will fill the pores and provide a protective layer

Brass objects

Brass objects include shells (such as used to construct the staircases to the Ban Na Kout temple, and other small items. Brass has a slow deterioration process. However, the process can accelerate when the brass is in contact with or located close to other metals. There is no particular need for an intervention, except for ensuring that no other metals are placed close to the brass objects.

Aluminum objects

Aluminum objects include parts from airplanes, cluster bomb casings and other small items. Since most of these objects are located indoors and therefore are not exposed to rain water, deterioration is minimal. Keep objects dry and clean. However, as with brass, contact and proximity to other metals (such as iron) accelerates deterioration, and this should be avoided.

In collaboration with the stakeholders, a preventive conservation schedule and plan to finance these activities need to be established. The latter is closely tied in with the financial structure described above. It is essential that those responsible for carrying out the preventive conservation receive training and are equipped with the necessary tools, equipment and materials, and follow the preventive conservation schedule.

UXO risk management

While conducting field work for the development of this plan, UXO Laos was conducting UXO clearance both in Ban Na Kout as well as along a path running through the former Na Khang airbase. However, in order to enhance the safety of visitors to the site, further efforts must be made to secure UXO clearing services for the Na Khang – Na Kout Historical Landscape, particularly of those areas to be used in the interpretation of the site to visitors.

Table 2 – Recommended UXO clearance targets for the Na Khang – Na Kout Historical Landscape

Area Targeted UXO clearance level Zones 1a, 1b, 2 and 3 All surface UXOs in areas accessible to visitors Zone 1a, 1b and 3 All UXOs within 25cm of the surface in the areas accessible to visitors Any areas selected for construction works. All UXOs; clearance depth depending on impact extent of construction

At the same time, communities should continue to receive UXO awareness seminars and visitors should be made aware of the UXO risks through on-site information panels and signs.

Community heritage awareness

In order to educate the communities about the significance of the site and the role they have in both the interpretation process and looking after the site, village level heritage awareness seminars are strongly recommended. At a minimum, seminars should be held prior to any other intervention at the site, but should ideally be recurring events in which there are dialogues with the community on evolving understanding of the heritage values and interpretation of the site.

Interpretation and Presentation

Presentation concerns planned communication of interpretive content through the arrangement of interpretive information, physical access, and interpretive infrastructure at a heritage site. This section provides recommendations regarding the content of the interpretive information and the media in which this content could be conveyed.

Table 3 - Overview of suggested interpretation for the Na Khang – Na Kout Historical Landscape

Interpretive Content Physical features illustrating the Media to convey content content Theme: War and Destruction - The strategic location of the site - Interpretive panels, Introduction to wars fought in this - Airstrip including a map of the area, area, the airstrip and airbase; the - Road work equipment historic photos, oral history, impacts on the site from war events; - Shell launcher information from US the looting of the site (scrap metal) - Bomb craters documents etc. - UXO - On-site verbal - UXO clearance interpretation by local - Looting evidence (separation of guides shell launcher from trailer) - Self-guide booklet - War-time photos of the site - Former location of Ban Na Khang - Recycled war materials in Ban Na Kout Theme: Resilience and Ingenuity - Recycled war materials in Ban Na - Interpretive panels Introduction to resourcefulness of the Kout, including: - Verbal interpretation in and people of Ban Na Kout while hiding in o flattened oil drums around Ban Na Kout by the jungle during the war when o bomb canisters village guides rebuilding their homes and livelihoods o shell casings - Self-guide booklet and after the war using war materials o airplane parts from Na Khang (such as flattened oil o other small materials used to drums, bomb canisters, parts of make household and airplanes etc.) agricultural tools

Infrastructure

Access road

As mentioned in Part I, accessing the site remains an issue due to the dilapidated condition of the access road. In order to attract enough visitors to generate sufficient income from tourism at the site to finance the preventive conservation measures and the maintenance of tourism infrastructure, accessibility needs to be improved. Improving the access road should therefore prioritized.

Walking trails

Planned tourism development in the area includes the creation of walking circuits, and trail improvement will be required to realize this. However, for visitors to the site arriving and leaving by car or motorcycle, the existing trails and paths are adequate, except for the trail to the shell launcher, which needs to be improved. UXO remains an issue and the measures recommended above should be considered.

Signage

Two types of directional signage are required. Firstly signs should be installed guiding tourists in Viengthong Town to Ban Na Kout. Secondly, once visitors have arrived in Ban Na Kout, signage should direct them to the main aspects of the site, such as the airstrip, road work equipment, shell launcher etc. Further, warning signs about UXO should also be installed as a priority.

Interpretation infrastructure

On-site interpretation infrastructure can distract and disturb the view. However, it also contributes to the experience of the visitor. In order to strike a balance here, some modest on-site interpretation infrastructure is recommended. A decision about the exact form this infrastructure will take should take into account available funds. A practical, cost-effective and low-impact solution could be on-site panels mounted in small on-site kiosks or on on-site boards protected from the elements by a small roof located in Zone 1b, 2 and/or 3. No interpretation infrastructure is allowed in Zone 1a.

Car park

While it is likely that the volume of vehicles from visitors to the site will remain low for the foreseeable future, it would be good to plan and mark two parking places: one near Ban Na Kout and one near Na Khang. Parking of tourist vehicles should not be allowed inside Zones 1a and 1b, only in designated areas in Zones 2 and 3.

Ticket sales point

Charging an entrance fee to visitors is an important strategy to generate income that can be used for the conservation and maintenance of the site. However, since visitor volumes are likely to be low initially, it is recommended to create a ticket sales point at a villager’s house located along the access road(s) into Ban Na Kout. When arrivals justify, a separate ticket booth can be constructed in the future.

Community lodge and toilets

In order to overcome the access issue and to provide more comprehensive programmes for tourists, it is recommended to provide the opportunity for tourists to stay overnight in Ban Na Kout. A community lodge (incl. toilets) could be considered, as well as homestay. Income derived from accommodating tourists in the lodge can also contribute to the financing the site’s conservation and maintenance.

Knowledge development

Limited knowledge exists about the history of the site. Continuing research should build up a knowledge base that will help increase our understanding of the Na Khang area as well as the wider context of the events in which Na Khang played such an important role. This knowledge is also required to interpret the site to the local community that is the custodian of this site, as well as visitors. Good interpretation contributes to visitor satisfaction.

Human resource development

Those tasked with managing the site should have the capacity and skills necessary to do so effectively. Ongoing training will have to be provided to villagers of Ban Na Kout involved in site maintenance. Initial trainings could be extensive, followed up annually with refresher trainings that also address issues that have been identified during monitoring. Trainers can include staff from Information & Culture at national, provincial and/or district levels and experts on projects.

Capacity among provincial and district Information & Culture staff is generally limited and training opportunities should be created for them to upgrade their skills and knowledge on the protection, management, maintenance and presentation of heritage sites. Trainers can include staff from Information & Culture at national level and experts on projects.

3: Making things happen

Implementation of this plan should be tied in with the implementation of the GMS Sustainable Tourism Development Project in Lao PDR (STDP). The STDP has already supported surveys and the development of this plan. It is strongly suggested that the STDP provides further financial and technical assistance for the implementation of the initial steps of this plan.

4: Action Plan

Action Description Priority UXO risk management UXO clearance of individual sites To be undertaken by professional UXO clearance team such as High UXO-Lao (to the standards indicated in Table 2) UXO clearance of trails and tourism To be undertaken by professional UXO clearance team such as or High service areas UXO-Lao (to the standards indicated in Table 2)

UXO awareness seminars Follow up seminars to be undertaken by professional UXO Medium clearance team such as UXO-Lao Cease the ongoing practice of scrap The ongoing practice of collecting scrap metal around the airbase High collection around the former is extremely dangerous and should be stopped. Alternative airbase livelihood options should be explored with scrap collectors, and assistance should be extended to them to make the transition. Display of information on UXO Information needed to ensure visitor understand the safety issues High dangers and clearance UXO poses and steps undertaken to ensure a safe experience Fund raising for UXO clearance High Heritage management Protection and conservation actions Heritage awareness seminars for Seminars designed to raise the awareness in the communities of Medium Ban Na Kout significance of the Na Khang – Na Kout Historical Landscape Preventive conservation and site Workshops for selected Ban Na Kout villagers to train them in High maintenance workshops for Ban Na vegetation cutting, cleaning, application of protective oil on metal Kout objects, digging and maintenance of drainage canals etc. Purchase tools, equipment, High materials and supplies needed for preventive conservation and site maintenance activities Visitor facilities and site interpretation/presentation Realize the proposed infrastructure In order to facilitate site visitation, enhance visitor experience and Medium to justify the proposal to institute an entrance fee, the recommended infrastructure interventions should be executed (such as improvement of the access road, directional signage (to Na Kout and on-site), interpretation infrastructure, designated parking areas, ticket sales point and community lodge with toilet) Develop interpretative materials Set of interpretation materials (panels etc.) to promulgate the Medium significance of the Na Khang – Na Kout Historical Landscape Management actions Monitoring of community based District (and Provincial) Information and Culture officers (after Medium management being trained on how to respond to management issues which may occur at Na Khang – Na Kout Historical Landscape) should periodically monitor the sites and the communities work

Action Description Priority Setting up of an entrance fee Revenue is essential to ensure community based management of High system for the Na Khang – Na Kout the site. An entrance fee system is one way of generating revenue Historical Landscape, a portion of for site conservation and maintenance. the revenue generated to be deposited into a conservation and management fund Establishment of a fund which can Funds are needed to finance site conservation and maintenance. A High be used only for the conservation fund should be established that is fed from an entrance fee system and management of the site and other tourism activities. Human resource development Heritage management group An Entrance Fee Collection Group and Site Maintenance Groups High formation and establishment of need to be established and rules and regulations agreed upon rules and regulations Local guide training Local guides (from Ban Na Kout) need to be trained as on-site Medium guides for the Na Khang – Na Kout Historical Landscape. Since it is unlikely that guides will be able to interpret in foreign languages in the near future, initially local guides will only guide Lao visitors and foreign visitors arriving with a national/provincial guide who can facilitate translation. If arrivals justify this, English language training can be provided to local guides as well so that in the future they can guide foreign tourists independently. Knowledge development (research) Continue research on the history of This information is needed to further refine and improve the Medium the site needed for interpretation significance statement for the site and to develop comprehensive interpretation materials Pro-poor Tourism Development Tourism development Development of a Tourism The STDP has agreed to provide technical assistance for the High Development Plan for the Na development of a Tourism Development Plan for the Na Khang – Khang – Na Kout Historical Na Kout Historical Landscape, including suggested tourism circuits Landscape in the wider area. The plan will propose detailed products/programmes and identify the steps required to realize them. Implementation of the Tourism The STDP has agreed to assist with the implementation of priority High Development Plan for the Na components of the Tourism Development Plan for the Na Khang – Khang – Na Kout Historical Na Kout Historical Landscape. This is high priority in order to Landscape generate the necessary income to finance the conservation and maintenance of the site. Strengthening of Local Government Tourism awareness workshop(s) for The workshops will provide an overview of the tourism industry, Medium District an update on the national tourism laws and regulations and a profile of international tourist’s interests. Heritage management workshops It is essential for the Provincial and District IC officers to Medium for District and Province understand and support heritage management issues. Topics to Information and Culture Officers include value of heritage, conservation strategies, importance of zoning, implementation of mechanisms, etc Establishment of Na Khang – Na A Na Khang – Na Kout Historical Landscape Steering Committee High Kout Historical Landscape Steering including representatives from all stakeholder groups to guide the Committee implementation of the Plan

Appendix 1 - Heritage Management Indicator Matrix

Indicator Standard Method of Management/mitigation action measurement Impact on cultural heritage values Number of reported Zero Monitoring report Meeting with all those involved in managing incidents of looting produced by the the site and operating tourism activities, as District Office of well as village and district police, village Information & leaders to raise further awareness, agree on Culture enhanced policing and to identify possible perpetrator(s). Number of reports of Zero Monitoring report Meeting with all those involved in managing intentional damage to produced by the the site and operating tourism activities, as sites or objects District Office of well as village and district police, village Information & leaders to raise further awareness, agree on Culture enhanced policing and to identify possible perpetrator(s). Corrosion level of iron and No change Monitoring report Meeting with Site Maintenance Group and steel objects produced by the Na Khang – Na Kout Historical Landscape District Office of Steering Committee to identify the reasons Information & and agree on remedial action Culture Violation of zoning regulations Reported impacts or Zero tolerance Monitoring report Meeting with relevant stakeholders to encroachments on Zones produced by the address issue and agree on mitigation action. 1a, 1b or 2 District Office of Information & Culture Activities in violation of Zero tolerance Monitoring report Organize village workshop on appropriate the regulations for Zones produced by the activities within the designated zones. 1a, 1b, 2 or 3 District Office of Information & Culture Implementation of maintenance regime Extent to which regular All as scheduled Monitoring report Meeting with relevant stakeholders to scheduled site produced by the address issue and agree on mitigation action. maintenance actions are District Office of carried out in one year Information & Culture Appreciation by and satisfaction of visitors Visitor satisfaction Drop in overall Tourism Feedback Analysis of issues, meeting with stakeholders satisfaction report produced by to discuss and agree on actions to enhance triggers Provincial Tourism experiences. management Department action Number of reported Zero tolerance Tourism Feedback Analysis of complaints followed by a meeting complaints on trail report produced by with all those involved in managing the site management / Provincial Tourism and operating tourism activities and village infrastructure / Department leaders to agree on appropriate information modifications/repairs to infrastructure and/or information. Interpretation materials

Indicator Standard Method of Management/mitigation action measurement Number of information No change Monitoring report Update and replace existing information panels or printed matter by Provincial panels or replenish stock of printed matter. available Department of Information and Culture UXO risk management Number of UXO related Zero tolerance Reports received by Close site temporarily; Conduct ongoing UXO incidents involving visitors authorities clearance UXO awareness among No violation of Monitoring report Conduct (refresher) UXO awareness training local communities standard produced by the procedures District Office of regarding UXO Information & Culture; hospitals; UXO Lao UXO information available Panels with Monitoring report Repair/update information panels at the to tourists UXO awareness produced by the visitor centre information District Office of available and in Information & good condition Culture Human resource development Ongoing training in At least one Training report Organize regular trainings for villagers in in preventive conservation training activity produced by the vegetation cutting, cleaning, application of and site maintenance per year District Office of protective oil on metal objects, digging and workshops for Ban Na Information & maintenance of drainage canals etc. Kout Culture Ongoing training for At least one Training report Invite national and international specialists District and Provincial training activity produced by to train provincial and district level officers in Information and Culture per year National or heritage management, conservation, and staff International other appropriate management or research trainers fields

Appendix 2 – Juxtaposed historic and recent photographs

Appendix 3 - Law on National Heritage (Lao version and English translation)