United Nations Educational, Scientific and Cultural Organization

Lahore Fort Master Plan 2006-2011

A project of funds-in-trust

Lahore Fort Master Plan 2006-2011

Produced and published by UNESCO 2006 Prepared and written by Dr. Pamela Rogers and Yasmeen Lari Copyright © 2006 UNESCO, Islamabad

Materials in this report may be reproduced for non-profit purposes, provided acknowledgment of the source is made.

Printed at: Format Designers & Printers Lahore -

This publication is available at:

UNESCO Office 1st Floor, Saudi Pak Tower Blue Area, P.O. Box: 2034 Islamabad Pakistan

Tel: (92-51) 2800080-83-84 Fax: (92-51) 2800056 e-mail:Islamabad@.org Website: www.un.org.pk/unesco ACKNOWLEDGMENT

The Lahore Fort Master plan was prepared as part of the UNESCO NORAD Project for the Conservation and Preservation of Lahore Fort by a team comprising:

International Consultant Dr. Pamela Rogers

National Consultant Yasmeen Lari UNESCO National Advisor, Lahore Fort Project

Specialist Contributors Dr. Mahmood Hussain Member, UNESCO Technical Committee, Lahore Fort Project

Fauzia Qureshi Member, UNESCO Technical Committee, Lahore Fort Project

Sajida Haider Vandal Member, UNESCO Technical Committee, Lahore Fort Project

Dr. M. Ishtiaq Khan, Former UNESCO Regional Advisor for Culture in Asia & the Pacific and Former Director General of Archaeology & Museums,

Heritage Foundation Pakistan

UNESCO Project Documentation Centre, Federal Department of Archaeology and Museums

Valuable input was provided at the commencement of the project by those attending the 1st and 2nd Experts Meeting at Lahore Fort, August 2003. In depth discussions and valuable input during the course of preparing the Master Plan were provided by:

Mr. Saleemul Haq National Project Coordinator, Lahore Fort Project Director, Northern Circle, Federal Department of Archaeology and Museums

Mr. Maqsood Ahmad Malik Deputy National Project Coordinator, Lahore Fort Project Senior Architect, Federal Department of Archaeology and Museums

Mr. Lyder Marstrander Senior Advisor International Affairs Directorate for Cultural Heritage, Rikstanikvaren, Norway

Officers and Staff of the Federal Department of Archaeology and Museums, Northern Circle, Lahore Fort and the UNESCO NORAD Project Documentation Centre, Lahore Fort.

FOREWORD

The Shalamar Gardens and Lahore Fort are masterpieces of art and architecture dating back to the Mughal period, which was at its height during the reign of Emperor (1628-1658). The structures within the Lahore Fort include marble palaces and decorated with mosaics and gilt. The elegance of the Shalamar Gardens, built near the city of Lahore on three terraces with lodges, waterfalls and ornamental ponds, is unequalled.

Unfortunately, the hydraulic system of the Gardens built around 375 years ago was destroyed in June 1999 to widen the road which borders the gardens on their South side. Around the same time, there was a real risk that Shish Mahal ceiling might collapse. In view of the damage observed and the threat facing the two sites, the World Heritage Committee decided to inscribe the Lahore World Heritage site in the List of World Heritage Sites in Danger.

UNESCO obtained funds from the Ministry of Foreign Affairs (MFA) Norway, the World Heritage Centre (UNESCO Headquarters) and the Getty Foundation (USA) for emergency work to be carried out in both sites. Funds from the Norway Government were used for the stabilization of Shish Mahal ceiling, the Akbari Gateway, Imperial Kitchens and the Pictured Wall. A Master Plan for the conservation and preservation of the Lahore Fort was also developed.

The Getty Foundation support was utilized for baseline surveys at the Shalamar Gardens with a view to facilitating the conservation process. The findings of the studies laid down the basis for the development of a Master Plan for the Shalamar Gardens. They also served as a source of information for the Government to undertake conservation work at the Gardens.

UNESCO wishes to thank the Federal Ministry of Culture and the Provincial Ministry of Culture, Punjab, for their continuous support and cooperation. The dynamic leadership of the respective Secretaries, Mr. Jalil Abbas and Mr. Taimur Azmat Osman, has been instrumental in successfully achieving the project objectives.

I hope very sincerely that these efforts will be instrumental in getting the Lahore World Heritage sites removed from the list of World Heritage Sites in Danger.

Jorge Sequeira Director/Representative

PREFACE

Culture in Pakistan is enriched with influences and resources of ancient civilizations that flourished in the region over centuries. The historical and archaeological treasures inherited by Pakistan are now being increasingly recognized and appreciated outside the country.

The Lahore Fort and Shalamar Gardens are examples of , landscaping and craftsmanship at its pools. The two sites were inscribed together in UNESCO's World Heritage List as one site, in 1981, for their outstanding universal value. Due to a general lack of awareness, a lot of encroachments appeared and other environmental factors resulted in damage to these sites. Critical condition of the Shish Mahal ceiling in the Lahore Fort, also contributed to placing of Lahore Fort and Shalamar Gardens on the list of World Heritage in Danger in the year 2000. Since then both the sites attracted attention of international community, which appreciably volunteered to safeguard these Monumental Treasure.

With funding from Norway, UNESCO is executing a project, “Conservation and Preservation of Lahore Fort”, which will conclude in October, 2006. Preparation of a Master Plan for Lahore Fort was an important component of the project, besides rehabilitating the Shish Mahal ceiling. Both objectives were successfully achieved during the first phase of the project.

Parallel to the Lahore Fort Project, UNESCO sought funds from Getty Foundation; USA and baseline studies were undertaken. The findings were compiled and used as the basis for development of a Maser Plan for Shalamar Gardens. The two Master documents, prepared by a team of highly competent national and international experts, will serve as reference documents and as a 'ready to implement' plan of action up to 2011 and beyond.

After transfer of these two monuments to the Government of the Punjab (Pakistan) on 18th August, 2004 we are dedicatedly pursuing to improve the condition of both the monuments to make them alluring for the visitors and beautiful in its appearance. This is an admitted fact that more damage was done to the monuments by environmental factors. Government of the Punjab on the basis of recommendations of experts who have worked for this Master Plan, have developed two different implementation documents worth Rs. 300 Million each for Shalamar Gardens and Lahore Fort. Work on improvement of lawns at both the places/sites is already in progress. The environment of Lahore Fort from two sides is being cleared from a number of encroachments, traffic, electric pools etc. bringing this back to its original outlook. Same efforts are underway in Shalamar Gardens and the most neglected area of “Naqar Khana” is being restored back to its old glory.

We are grateful to UNESCO for its interest and support, which facilitated the Punjab Government to pursue its goals. The projects enabled training and capacity building of the relevant staff of Punjab Archaeology Department in documentation, conservation, project management, monitoring and evaluation. Consequently, the two sites are being looked after and maintained by trained and knowledgeable personnel of the Punjab Government.

The Master Plan is a comprehensive document, the implementation of which will ensure preservation of the World Heritage site and educate the public at large regarding the significance and value of the country's cultural heritage. Above all, we hope that by following the direction provided by this user-friendly document, we would be able to get the two sites off the list of World Heritage in Danger.

Taimur Azmat Osman Secretary Information, Culture & Youth Affairs Department Government of the Punjab LAHORE FORT MASTER PLAN

Executive Summary

The Lahore Fort Master Plan provides a detailed and complete framework for determining and implementing a coherent set of appropriate actions to preserve and manage this World Heritage site. It aims to ensure that the cultural heritage significance of Lahore Fort is not compromised, and that the values for which the monument was listed are not lost. It is intended to serve primarily as a working document for the custodians of the site. However, it also informs all levels of government and concerned departments of their roles and responsibilities, as well as providing a format for increased community and voluntary involvement in caring for the site.

Part 2 presents a brief background to the history of the citadel, and its inscription as a UNESCO World Heritage site. It discusses the site's significance, emphasizing the responsibility of site managers to preserve this within the existing legal and regulatory framework.

Part 3 describes the theoretical approach taken by the study team that designed the Master Plan, clarifying the framework within which work was carried out. This includes the approach towards intervention and the setting of conservation priorities.

Part 4 presents important core data regarding the significance, condition and conservation needs of the site's structures. It explains the system for detailed documentation of the site's built elements. Developed by the Heritage Foundation Pakistan (HFP), this comprehensive recording system comprises: baseline survey folios; history of intervention dossiers for each structure; catalogues containing information on the condition of all structures; documentation catalogues, containing concise and comprehensive forms on each building. This data provides the baseline information for all conservation and maintenance decisions at the site.

Part 5 describes the current context of Lahore Fort, highlighting the many issues it faces in terms of site management, conservation, monitoring and maintenance, research, visitation and the environment in and around the site. The purpose of this section is to clearly identify the range of critical issues the Master Plan needs to address.

Part 6 of the Plan presents a series of integrated Action Plans, based on expert input. These address the many issues raised in Part 3, in the context of the information presented in Part 5. This programme for action aims to achieve the vision set out for the World Heritage site's future, in both the short and longer term. It defines the overall approach taken, reformulates issues into objectives and proposes actions for meeting these.

Following the presentation of recommended actions, a detailed Lahore Fort Objectives 2005-11 presents objectives with their level of priority, target date, key implementation agents and an assessment of the types of resources needed for their implementation.

The subsequent Conservation Priority List sets out Priority 1 (emergency), Priority 2 (stabilization), Priority 3 (preventive conservation) and Priority 4 (conservation) needs for each building and structure at the site, with indicative costs. The list will guide the allocation of any funding, ensuring that endangered structures receive the emergency attention and stabilization necessary to extend their life span.

Part 6 ends with recommendations for further specialist studies and projects to support the Master Plan's effective implementation. The management and staff of Lahore Fort can undertake some of these, as part of the on-going preservation programme; others will need to be carried out by external government agencies.

Finally, Part 7 presents the mechanisms for implementing the Master Plan, including the term over which the Plan will extend, the various agents responsible for its implementation and a format for its systematic review at set intervals. Part 7 also includes a set of performance indicators for reviewing implementation, and planning any corrections required. CONTENTS

Part 1: Introduction to the Master Plan 1-8 1.1 Need for and role of the Master Plan 3 1.2 Master Plan goal 3 1.3 Specific objectives of the Master Plan 3 1.4 Vision statement for Lahore Fort 4 1.5 Key stakeholders 4 1.6 Master Plan input and structure 5

Part 2: Introduction to the Lahore Fort 9-16 2.1 Brief historical background 11 2.2 World Heritage Inscription 14 2.2.1 Background to Inscription 14 2.2.2 Statement of cultural significance 14 2.2.3 Implications for the Master Plan 15 2.3 Legal and regulatory framework 15 References 16

Part 3: Theoretical Framework 19-26 3.1 Guiding principles to achieve a long-term vision 19 3.1.1 Maintenance of the authenticity and values of the site 19 3.1.2 Safeguarding all original remnants is a conservation priority 20 3.1.3 Decision-making must be based on full documentation and research 20 3.1.4 Conservation and management programming must be sustainable 20 3.1.5 Tourism should support conservation needs - not conservation to meet the needs of tourism 20 3.2 Standards for intervention 22 3.2.1 Levels of intervention 22 3.2.2 Selection of intervention level 24 3.3 Prioritization of conservation interventions 25 3.3.1 Conservation situations 25 3.3.2 The aim of prioritisation 26 References 26

Part 4: Inventory of Heritage Resources 27-38 4.1 Background to the methodology 29 4.2 Baseline survey folios 32 4.3 History of intervention dossiers 34 4.4 Condition survey catalogues 35 4.5 Documentation catalogues 36 4.6 Recording activity before, during, after 36 References 37

Part 5: Current Context and Issues 39-74 5.1 Site management issues 41 5.1.1 Custodianship and oversight 41 5.1.2 Enforcement of legal protection 42 5.1.3 Staffing 43 5.1.4 Training 44 5.1.5 Past Master Plans 44 5.1.6 Funding procedures 46 5.2 Conservation issues 48 5.2.1 Overall conservation approach 48 5.2.2 Prioritizing critical conservation issues 48 5.2.3 Procedures for implementing conservation work 51 5.2.4 Documentation 51 5.2.5 Conservation laboratory 53 5.2.6 Archaeological repository 53 5.2.7 Skilled artisans in traditional building crafts 54 5.3 Monitoring and maintenance issues 55 5.3.1 Routine monitoring and maintenance 55 5.3.2 Monitoring of conservation works 55 5.3.3 Maintenance of ruins and archaeological remains 56 5.3.4 Cleaning of monuments 56 5.3.5 Damage from watering of plants 56 5.4 Research and publication 57 5.4.1 Overall situation 57 5.4.2 Publication 58 5.4.3 Archaeological research 58 5.4.4 Library 58 5.4.5 Archival material 59 5.5 Site visitation 59 5.5.1 Threats from uncontrolled visitation 59 5.5.2 Emergency protection of fragile elements 60 5.5.3 Estimating visitor capacity 61 5.5.4 Interpretation and education 61 5.5.5 Museum displays 62 5.5.6 Young visitors 62 5.5.7 Community outreach 63 5.5.8 Restoration of historical access and links 64 5.5.9 Tourist facilities 64 5.5.10 Community craft production 64 5.5.11 Use of historical buildings and areas for events 65 5.6 Environmental and physical infrastructure issues 66 5.6.1 Overall situation 66 5.6.2 Environment in the areas surrounding the site 66 a. Vehicle movement and resulting pollution 66 b. Encroachment in the environs of the Lahore Fort 67 c. Integrated urban context 68 5.6.3 Physical infrastructure of the site 68 a. Sewerage and storm drainage systems 68 b. Water supply and distribution 69 c. Solid waste 70 d. Electrical systems and lighting 70 e. Security 71 5.7 Strengths, Weaknesses, Opportunities and Threats (SWOT) situational analysis of the Lahore Fort World Heritage site 72 References 72

Part 6: Programme for Action 75-168 6.1 Introduction 77 6.1.1 Short-term vision 77 6.1.2 Longer-term vision 78 6.2 Site management strategy 79 6.2.1 Overall strategy 83 6.2.2 Site Management Strategy (SMS) objectives 83 SMS Objective 1. Structures for custodianship and oversight 83 SMS Objective 2. Adequate financial resources augmented by a diversified funding base 89 SMS Objective 3. A mechanism to take advantage of contributions in kind 91 SMS Objective 4. Mechanisms for acknowledgment of contributions 92 SMS Objective 5. An informed management team who understand overall conservation objectives and priorities/ managing change 94 SMS Objective 6. Development of a Pakistan Conservation Institute (PCI) as a viable training facility 94 SMS Objective 7. Core competency training for all levels of staff to upgrade skills and build capacity within the department 96 SMS Objective 8. Implementation of standard operating procedures (SOP) for frequently performed tasks to ensure consistency and maintenance of standards 97 SMS Objective 9. The systematic integration of analytical management tools into the short and long-term planning by site custodians 98 SMS Objective 10. UNESCO assistance in creating a support network of international collaboration and interaction 101 6.3 Conservation strategy 102 6.3.1 Overall Strategy 102 6.3.2 Conservation (COS) Objectives 104 COS Objective 1. All work is done in line with the Conservation Action Priority List 104 COS Objective 2. Procedure for undertaking conservation work 106 COS Objective 3. Full and accessible documentation of the entire site 107 COS Objective 4. A well-equipped and committed conservation laboratory facility 108 COS Objective 5. Centralized and systematic storage and inventory of all artefacts and building elements retrieved or excavated from the site 108 COS Objective 6. Reinstallation of original historical building elements 109 COS Objective 7. Development of a conservation resource library 109 COS Objective 8. Training of qualified craftspeople and artisans to Carry out conservation and maintenance work in traditional materials and methods 109 COS Objective 9. A resource collection of building crafts 110 COS Objective 10. Support of in-house conservation 111 6.4 Monitoring and maintenance systems 111 6.4.1 Overall Strategy 111 6.4.2 Monitoring and maintenance (MM) objectives 112 MM Objective 1. Systematic monitoring of the historical fabric and building condition at the Lahore Fort 112 MM Objective 2. A programme of regular site maintenance 114 MM Objective 3. A system of monitoring conservation work carried out by the department or under their supervision 116 MM Objective 4. Protection of archaeological resources 116 MM Objective 5. Initiation of an expanded cleaning maintenance programme for the site 118 MM Objective 6. Review of the planting programme 119 6.5 Research framework 119 6.5.1 Overall Strategy 119 6.5.2 Research Framework (REF) Objectives 120 REF Objective 1. Mechanisms to support a wide ranging research programme at Lahore Fort 120 REF Objective 2. A Lahore Fort publication programme 121 REF Objective 3. Programme of archaeological research & investigations 122 REF Objective 4. Upgrading of the library 123 REF Objective 5. Programme for collection, storage and inventory of archival material 124 6.6 Visitation Policy 124 6.6.1 Overall Strategy 125 6.6.2 Visitation Policy (VIP) Objectives 126 VIP Objective 1. An Emergency Protection Plan to control visitor access and close fragile areas 126 VIP Objective 2. An integrated interpretive policy based on sound research 129 VIP Objective 3. Upgrading the Museum 130 VIP Objective 4. Drawing the Lahore community into all aspects of the site's present and future safeguarding 131 VIP Objective 5. Restoring the historical relationship between Lahore Fort and the walled city 132 VIP Objective 6. Relocating visitor services and amenities 134 VIP Objective 7. Events management 134 VIP Objective 8. Adaptive re-use of historical buildings for visitor use 135 6.7 Environmental and physical infrastructure plan 136 6.7.1 Overall strategy 136 6.7.2 Environmental Plan (EPI) Objectives: the site's environment 136 EPI Objective 1. Revitalizing the site's environs and reinstating a viable buffer zone 136 EPI Objective 2. Entrance location and corresponding parking areas 138 EPI Objective 3. A phased approach to traffic issues and pedestrianization in the site's environ 138 EPI Objective 4. Implementing Cultural Heritage Impact Assessments (CHIA) 140 EPI Objective 5. Partnerships with the Lahore City Government and the tourism industry to achieve preservation goals 140 6.7.3 Physical Infrastructure (EPI) Objectives 141 EPI Objective 6. Surface water drainage and damage to historic buildings 141 EPI Objective 7. Management of garbage and solid waste 142 EPI Objective 8. Improving toilet facilities 142 EPI Objective 9. Upgrading electrical provision at the site 142 EPI Objective 10. Enhancing the site for evening use 142 EPI Objective 11. Improved standards of security at the site 143 6.8 Lahore Fort Objectives - Action Plan 2004-12 143 6.8.1 Key to the Action Plan Table: 143 6.9 Conservation Priority List 154 6.10 Recommendations for further specialist studies 154 6.11 Sharing Progress with the Public 163 References 164

Part 7: Implementing the Master Plan 165-178 7.1 Implementing the Master Plan 167 7.1.1 Goals 167 7.1.2 Term of the Master Plan 167 7.1.3 Agents responsible for implementation 168 7.2 Reviewing the Master Plan 170 7.3 Performance indicators for reviewing implementation of the Master Plan 170 References 178

List of Figures Figure 1.1 Schematic diagram of Master Plan structure and content. 7 Figure 2.1 Map showing the location of the Lahore Fort and Walled city. 12 Figure 4.1 Map of Lahore Fort with structure and building reference numbers 33 Figure 6.1 Model of cultural resource management 79 Figure 6.2 Diagram of the proposed management structure 88 Figure 6.3 Diagram of the proposed diversified funding approach 93 Figure 6.4 Diagram showing the formation process of Pakistan Conservation Institute 95 Figure 6.5 Diagram showing the structure of the Pakistan Conservation Institute 96 Figure 6.6 Diagram illustrating proposed flow of conservation activities 103 Figure 6.7 Diagram illustrating conservation action priority 105 Figure 6.8 Diagram showing monitoring needs 113 Figure 6.9 Monitoring and maintenance teams' structure 114 Figure 6.10 Setting up and implementation of the monitoring and maintenance programme 115 Figure 6.11 Map showing the areas of exposed archaeological remains and of archaeological potential 117 Figure 6.12 Long term protection of below ground archaeological resources 123 Figure 6.13 Map Showing Visitors' facilities and routes 128 Figure 6.14 Map showing the Shahi Guzargah (royal route) to link the site with the walled city 133 Figure 6.15 Map of Lahore Fort and its immediate environs, and existing traffic management 137 Figure 6.16 Traffic rerouting and designated pedestrian areas 139 Figure 7.1 Partners responsible for implementing Action Plan components Figure 7.2 Diagram illustrating the review process (MG = Management Group, TC = Technical Committee, SC = Site Commission) 172 List of Tables Table 3.1 Statement of the site's cultural values. 21 Table 3.2 Statement of the site's contemporary socio-economic values. 22 Table 4.1 Unique numbering system for Lahore Fort structures, showing their original period and any subsequent interventions. 32 Table 4.2 Summary of documentation and recording system. 37 Table 5.1 Site management issues. 48 Table 5.2 List of conservation issues. 55 Table 5.3 Monitoring and maintenance issues. 57 Table 5.4 Research issues. 59 Table 5.5 Visitor numbers from November 1999 to October 2000. 61 Table 5.6 Site visitation issues. 65 Table 5.7 Environmental and physical infrastructure issues. 71 Table 5.8 SWOT situational analysis at Lahore Fort World Heritage site. 73 Table 6.1 Correlation between the issues raised in Part 3 of this report and the Action Plan objectives. 82 Table 6.2 Format of Risk Assessment Model 100 Table 6.3. Research Framework: types of studies that would contribute to the research base 121 Table 6.4 Issues related to the buffer zone and responsible agents 137 Table 6.5 Management Strategy Action Plan 144 Table 6.6 Conservation Strategy Action Plan 146 Table 6.7 Monitoring and maintenance systems Action Plan 148 Table 6.8 Research Framework Action Plan 149 Table 6.9 Visitation Policy Action Plan 150 Table 6.10 Environmental and Infrastructure Plan Action Plan 152 Table 6.11 Building Conservation Action Priority List & Related Costs 156 Table 6.12 Year-wise targets for conservation actions at Lahore Fort 158 Table 7.1 Proposed performance indicators 178 ACRONYMS

CYOC Community and Y outh O utreach C ell

HFP Heritage F oundation P akistan

LFA Logical f ramework a nalysis

PDC Project D ocumentation C entre

PIATR Pakistan I nstitute for A rchaeological T raining and Research

PTDC Pakistan T ourism D evelopment C orporation

PCI Pakistan C onservation I nstitute

ICOMOS International Co uncil on M onuments and S ites

ICCROM International Centre for the Study of the Preservation of Cultural Property

ISESCO Islamic E ducational, S cientific and C ultural Organisation

SOP Standard O perating P rocedures

SWOT Strengths, W eaknesses, O pportunities and T hreats

UNESCO United N ations E ducational, S cientific and C ultural Organization

NAMES AND TERMS

Akbar, Jalal-ud-din Mohammad Third Mughal emperor of India, who ruled from 1556- (1542-1605) 1605.

Architrave/s Moulded surround/s to an opening or recess.

Auqaf Department Federal Government of Pakistan Department, responsible for the upkeep and management of religious buildings.

Aurangzeb Alamgir (1618-1707) Last of the great of India (1658-1707), during whose reign the empire reached its widest extent. Backet/s Projections from a wall for support.

Burra Charter Alternative title for the Charter for the Conservation of Places of Cultural Significance. See References for full bibliographic details.

Capital/s Top part of a column, often decorated with carvings.

Chajjas See Eave/s.

Dado A strip of wood, metal or stone fixed to a lower part of a wall.

Darbar An official reception held by a local prince, ruler or British governor in colonial India.

Eave/s The lower, projecting edges of a roof.

Fresco Picture painted on to a plastered wall when the plaster is still wet.

Fretwork Word, metal or stone decorated by carving to create a pattern.

Haveli House, often a larger premises built around a central courtyard.

Jehangir (1569-1627) Fourth Mughal emperor of India (1605-27), the eldest son of Emperor .

KaravanPakistan A community and youth outreach programme, promoting heritage for a culture of peace, national integration and development. From 2001, it has organised heritage 'street fests' and other culture and heritage-related events - initially in Karachi, and, from 2004, throughout Pakistan.

Lahore Fort The appellation dates from the British period. Its appellation is Lahore Fort, which translates as royal fort, or more appropriately, royal citadel.

Lintel/s A piece of stone, concrete or wood over a door or window supporting the masonry above. Mahmood of Ghazni (1170-1206) Shahab-ul-Din, King of Gazni.

Mughal The ruled the Indian subcontinent for more than 300 years from 1526 to 1858, except for a brief period under the Sur Sultans (1540-1555). The British abolished it in 1858.

Pietra dura Technique of engraving designs in marble and then inlaying these with thin sections of precisely cut semi- precious stone in a variety of colours to create pictures or patterns.

Ranjit Singh (1780-1839) Indian warrior and founder of the Sikh Kingdom of the Punjab. Screen/s A partition that partially divides a space.

Sepiolite Hydrated magnesium silicate.

Shah Burj A portion of the Lahore Fort commissioned by Shah Jehan, it contains the Shish Mahal and number of other important buildings.

Shah Jahan (1592-1666) Fifth Mughal emperor of India (1628-1658), the third son of Emperor .

Shish Mahal A palace building, forming part of the Shah Burj. It contains a famous mirrored ceiling.

Spalling The splintering or breaking down of stone or concrete.

Stratigraphy The study of strata, or layers specifically, the superposition of soil and geological strata containing archaeological materials in order to determine the relative ages of layers. PART 1

Introduction to the Master Plan

1 2 PART 1 INTRODUCTION TO THE MASTER PLAN

1.1 NEED FOR AND ROLE OF THE MASTER PLAN

Lahore Fort is the foremost Mughal monument in Pakistan. It reflects the full span of the Mughal period, comprising architectural and garden elements representing the pinnacle of Mughal aesthetics, design and artistry. The importance and significance of the monument have been acknowledged by its inclusion, in 1981, on the UNESCO list of World Heritage sites. However, it was inscribed without a master plan forming part of the nomination. Today, negative impacts from environmental degradation, visitor usage and ill-advised interventions are increasing. Without an appropriate response, they will continue to increase. A comprehensive master plan is urgently required urgently to ensure that the cultural heritage significance of Lahore Fort is not compromised, and that the values for which the monument was listed are not lost.

1.2 MASTER PLAN GOAL

The overall goal of the Lahore Fort Master Plan is to provide a detailed and holistic framework for determining and implementing a coherent set of appropriate actions to preserve and manage this World Heritage site. All efforts must focus on preserving and enhancing the many values that contribute to the site's universal cultural significance.

1.3 SPECIFIC OBJECTIVES OF THE MASTER PLAN

The Master Plan meets the following specific objectives:

a. to assess the effectiveness of existing management systems, and propose changes or new methods which would build on these; b. to look at ways of generating funds for conserving and developing the site; c. to achieve baseline documentation and condition assessment of the built and landscape elements of the entire site; d. to develop a strategic approach to conservation to ensure that the appropriate level and type of intervention is applied to specific conservation issues faced at the site; e. to prioritize all conservation actions, set standards for determining future priorities and ensure that conservation actions are carried out on the basis of need and urgency; f. to design a system of regular monitoring to ensure that baseline conditions are retained, if not improved; g. to design a practicable system of continuing maintenance for the grounds and all buildings;

3 h. to set focused, multi-disciplinary research goals involving staff, national and international scholars and teams; i. to present a plan that finds the optimal level for visitation, ensuring that the site benefits rather than suffers and that the visitor experience is enhanced; j. to recommend ways to improve community out-reach and involvement in the site; k. to upgrade the physical environment and infrastructure of the site and its environs; l. to assist site managers in implementing proposals that are not be hindered by changes in staff or circumstances.

1.4 VISION STATEMENT FOR LAHORE FORT

Although it consists of many structures, it is important to treat the site as a single entity comprising historic structures interlinked by quadrangles and open spaces. Conserving and safeguarding this entity must be central to all discussion relating to it. Methodologies adopted need to aim at presenting layers of history and infusing a new dynamismin developing a sense of historical continuity from the past to the present.

The second Experts Meeting on the Preservation and Conservation of Lahore Fort, organized by UNESCO in August 2003, agreed on the following vision statement.

Statement of Vision

To transmit to the coming generations an experience of a traditional culture in all its multiple dimensions, because it is these traditions that encapsulate a world view and wisdom which has sustained our humanity and our planet for millennia past.

1.5 KEY STAKEHOLDERS

The following key stakeholders were involved in the design, delivery and receipt of the Lahore Fort Master Plan.

a. Funders The Norwegian Government has generously funded the project through the Norwegian Agency for Development Cooperation (NORAD).

b. Delivery Partners The Government of the Punjab.

c. Target Audience The Master Plan addresses the following target audiences.

4 i. Custodians of Lahore Fort The Plan is specifically designed and formatted as a working document that can be updated as required. For this purpose, there is a range of supplementary information in Annexures at the end of the main plan. ii. Concerned provincial and local government departments specifically those involved with strategic and physical planning within the site and its environs. The Lahore Fort is an integral part of urban Lahore. Many of the issues concerning its preservation and presentation need addressing at a city and provincial level. The Master Plan attempts to identify the roles and responsibilities of all stakeholders, and proposes systems for liaison and cooperation. iii. The community and voluntary organizations, especially schools, youth and women. As a World Heritage site, the citadel is part of the shared heritage of Lahoris, Pakistanis and the world as a whole. The Master Plan views access by the community as an essential component of successful preservation and management. It aims to involve people in as many ways as possible. It also provides a format for involving voluntary organizations, in collaboration with the site's custodians, to ensure greater outreach to the community and young people. A diverse range of stakeholders contributed to the Plan's preparation, through a series of meetings, on-site interviews, discussions and continuing communication. This ensured that all parties were able to adequately present their needs and interests as the study evolved. Further input from all parties was also sought on the Draft Report, in order to finalise the Plan.

1.6 MASTER PLAN INPUT AND STRUCTURE

The Master Plan is based on relevant documentation and international best practice, supported by detailed studies carried out by national experts on:

q environmental and physical planning; q management and monitoring systems; q visitor management; q building condition assessment; q conservation interventions.

The studies produced were based on extensive research, fieldwork, interviews and professional experience. Each expert was commissioned to:

5 q make an assessment of existing conditions and a situation analysis; q make recommendations for prioritised action to address identified issues; q develop integrated plans for implementing recommendations; q identify any additional specialist studies needed to enable implementation of the Master Plan.

The Master Plan study began in August 2003, at the second Experts Meeting on the Preservation and Conservation of Lahore Fort held at the site. A draft scope for the Master Plan was presented to the assembled experts for discussion, comment and initial approval. After ongoing consultation with the Lahore Fort Technical Committee and integration of expert input, a Draft Master Plan report was submitted in late March 2004. After modification, the final Master Plan Report was submitted in June 2004.

The Master Plan comprises seven parts:

Part 1 is an introduction to the Master Plan, including the need for the plan, its objective and aims, vision statement, stakeholder discussions and Plan inputs and structure;

Part 2 introduces the Lahore Fort, comprising a brief historical background, an outline of its World Heritage Inscription and the legal framework in which the site is embedded;

Part 3 summarizes the current situation at Lahore Fort in terms of management, conservation, monitoring and maintenance, research, visitation, environment and physical infrastructure, followed by a Strengths, Weaknesses, Opportunities and Threats (SWOT) situational analysis;

Part 4 gives a brief statement concerning the theoretical framework in which the Master Plan has been prepared, the overall approach to conservation interventions and the need for the setting of priorities;

Part 5 provides essential baseline documentation, in the form of detailed catalogues of all buildings, structures and other heritage resources comprising the Lahore Fort;

Part 6 presents a multi-disciplinary programme of integrated action designed to address the conservation and management issues facing the Lahore Fort ;

Part 7 proposes ways in which the action programme can be implemented and scheduled.

6 Goal and Objectives Theoretical Framework World Heritage significance

Legal & Assessment of Inventory of regulatory existing conditions Heritage framework at the site: Resources

Site Management Monitoring & Research Visitation Maintenance Environment & Conservation Infrastructure

Objectives - Action Plan 2006- 2012

Implementation Review Mechanisms Mechanisms

Figure 1.1 Schematic diagram of Master Plan structure and content

7 8 PART 2

Introduction to Lahore Fort

9 10 PART 2 INTRODUCTION TO LAHORE FORT

2.1 BRIEF HISTORICAL BACKGROUND

The Lahore Fort World Heritage site is located near the River Ravi, in the northwestern corner of Lahore's walled city (see Fig. 2.1). Archaeological evidence from the site of the citadel goes back to pre-Muslim times, although the configuration and layout of the present citadel is generally agreed to have been initiated by Akbar. After having built Agra and as impressive capitals, Lahore became an Akbari showcase for the best architectural ensembles of the period.1

From its planning and its extensive use as a royal residence, it is clear that the site was envisaged as a fortified palace rather than a defensive fort. Three Mughal emperors, Akbar, Jahangir and Shah Jahan, concentrated on building exquisite palace structures after the first fortification walls had been constructed to secure the perimeter of the citadel. In truth, after the threat posed by Mirza Hakim (Akbar's step-brother), when the mud brick wall was replaced with stronger brick fortifications, there was no occasion for the citadel to defend itself from invading armies and it continued to flourish as a palace when the emperor was in residence at Lahore.

The value of the site as a showcase of Mughal architecture stems from the fact it served as the garden palace for all the great Mughal emperors and contains exemplary architecture from each reign. The present configuration of the Lahore Fort can justifiably be attributed to the master of fortification planning, Jalal-ud-Din Mohammad Akbar. Although built on the remains of citadels of earlier dynasties, Akbar planned and fortified the present site when he established his capital in Lahore for the 14 years between 1584-98. Akbar used the earlier mound, which archaeological evidence dates to pre-Muslim occupations, as the central core for semi-public and service areas. The earlier perimeter wall of sun- dried brick was replaced with burnt brick fortification walls, turrets and towers to secure the citadel's western, southern and eastern periphery. The River Ravi, which then flowed along the northern periphery, provided a secure and scenic front for the imperial section of the intensely private palace frontage, raised on subterranean chambers.

It is not certain that Akbar intended the citadel to be a garden palace. However, he did initiate the process by planning hisharem sera (female quarters) palace in the form of a . His successors continued to use thechahar-bagh (garden quadrangle) concept, as they developed the citadel palaces along the northern periphery. Thus, the citadel can be best understood as a conglomerate of linkedchahar-baghs. Each of these is endowed with its own special introverted spatial characteristics, bordered by (suites),burj (towers) or dalans (cells). The linked imperial courts are defined as Ahata-e-

11 SHAHDARA

BAND ROAD ..ROAD G.T.

RAVI BRIDGE SABZI MANDI ROAD

SABZI MANDI ROAD RIVER RAVI

ROAD ROAD BADAMI BAGH BUS TANND IQBAL PARK G.T. ROAD

RAILWAY STATION

DATA DARBAR CENTRAL MODAL

SCHOOL MALL BAND ROAD LOWER

CHOBURJI

Fig. 2.1: Map showing the location of Lahore Fort, Lahore

12 Jahangir, Ahata-e-Shah Jahan, Ahata-e-, Ahata-e-Khilwat Khana and Shah Burj, complete with quadrangle. The highly public Maidan-e-Diwan-e-Aam, although not a plannedchahar-bagh , was nevertheless created as an introverted space bordered on three sides by a large number ofdalans , of which the Jahangir period Makatib Khana formed the northwestern edge.

Akbari period sculptured structural elements found in Jahangir's quadrangle are unique to the Lahore citadel, the work of the most experienced artisans brought in after the completion of Fatehpur Sikri. Similarly, the spectacular frescos of the Kala Burj (imperial residential tower) ceiling demonstrate the skill of Jahangir's court painters in incorporating influences of European artistic imagery. The pristine classical Shah Jahani order, with its refined in marble seen in the Shah Burj, reflects the aesthetic preference of the early Shah Jahan period. The picture wall, which extends for three quarters of a mile along the western and northern fortification walls, is one of the longest kashi-kari (tile mosaic) murals in the world. Portraying the pursuits and courts of the Mughals, it represents the high point of both Jahangir's and Shah Jahan's reigns.2

After the construction of the Badshahi by Alamgir, the later Mughals did not often frequent Lahore. With the rise of the , , the one-eyed Sikh ruler, made extensive use of the citadel. Although he never sat on the throne of the Mughals, he set up his darbar in the Shah Burj and made the Shish Mahal his favourite abode. Several rooms were constructed on the roof of the Shish Mahal, as well as the famed Athdara in the Shah Burj forecourt. Structures were also constructed on other Mughal buildings - examples include the Mai Jindan Haveli and the palace of . During the Sikh Period, Ranjit Singh dismantled and re-used Mughal elements in buildings constructed by him. The fort suffered enormously during the inter-Sikh wars, when cannons directed at the walls of the fort irretrievably damaged Shah Jahan's Diwan- e-Aam.

The British period was also destructive, due to the establishment of a British cantonment and inappropriate use of elegant palace buildings. In 1905, after the visit of Viceroy Curzon, action was taken to dismantle cantonment structures after British army units began to vacate them. A concerted effort to restore Mughal imperial structures dates from that period.

Although several makeshift British structures were removed, some survived until after 1947. More recently, controversial new constructions have been added to Jahangir's quadrangle in an attempt to recreate the original quadrangle configuration.

From its configuration, it is evident that the citadel, whilst it helped in the defence of the city and its residents, was itself dependent on the city for supplies and protection. This particular relationship was severed during the British period by the opening of a postern

13 gate, closing up of the historical Akbari gateway and later construction of the ceremonial steps on the southern periphery. There is an obvious need to re-establish the link between the Mughal citadel and Lahore's walled city, as is suggested in the UNESCO report on Cultural Tourism in Lahore and Peshawar.3

2.2 WORLD HERITAGE INSCRIPTION

2.2.1 Background to Inscription

Lahore Fort was jointly inscribed on the World Heritage List with the Shalamar Gardens, in 1981. Both sites were inscribed on the basis of Criteria (i), (ii) and (iii), specifically because 'They represent a masterpiece of human creative genius, exhibit an important interchange of human values over a span of time or within a cultural area of the world, or developments in architecture or technology monumental arts, town planning or landscape design, and because they bear a unique or at least exceptional testimony to a cultural tradition or to a civilization which is living or has disappeared.'4

The 23rd Session of the World Heritage Committee, meeting in December 1999, noted that there had been serious damage to the mirrored ceiling of the Shish Mahal, aggravated by water seepage during the 1999 monsoon season. The ICCROM recommended the installation of temporary roofing.

As a result, the 23rd session of the World Heritage Committee placed Lahore Fort on the list of World Heritage sites in danger. No specific reference was made to the conservation crises at the Lahore Fort. The site was still on the list when this document was prepared.

2.2.2 Statement of cultural significance

The term 'cultural significance' means the 'Aesthetic, historic, scientific, social or spiritual value for past, present or future generations embodied in the place itself, its setting, use, associations, meanings, records, related places and related objects.'5

The following statement defines the cultural significance of the Lahore Fort.

Lahore Fort is the foremost Mughal monument of Pakistan, imbued with layers of historical and spiritual meaning for locals and visitors alike. Inside its walls are preserved numerous examples of the apogee of Mughal arts, building crafts and architectural skills in a single complex, enriched by temporal depth and continuity from prehistory to the present. The changing and evolving styles throughout the period and into the Sikh and British eras are richly preserved.

14 Individual elements are spatially arranged according to a set of archetypal Mughal design principles: a series of chahar-bagh quadrangles presenting a balanced formal composition of space, water, vegetation and architecture, texture and colour, light and shade, designed to divide space into public and private and to provide physical and symbolic transitions between them. In addition to providing an oasis of green and calm in the crush of urban Lahore, the site has great didactic potential to teach all ages about the wealth of the past and its relevance and value to the present and future.6

2.2.3 Implications for the Master Plan

World Heritage inscription does not provide specific statutory protection or financial aid from UNESCO. It is an internationally recognized designation, which encourages national governments and site managers to ensure long-term protection for sites of global significance. TheBurra Charter states that the aim of conservation is to retain the cultural significance of a place (Article 2.1) and that places of cultural significance should be safeguarded and not put at risk or left in a vulnerable state (Article 2.3). It is this cultural significance which is the basis for World Heritage inscription, and it is the responsibility of states parties to 'Maintain the authenticity and, in the case of World Heritage sites, the cultural values for which the site was inscribed.'7

Master Plan design and implementation has to clearly focus on maintaining and protecting individual physical elements and the place itself its setting, use, associations and meanings in order to meet this obligation. Specifically, this means safeguarding the period fabric of buildings and structures, the details of style and decorative schemes, the balance of periods represented by new structures and alterations to existing ones, spatial relationships between architectural elements and open spaces and the symbolic meaning of spaces and movement through them. All conservation treatments should guarantee protection of the site's authenticity, prolong the duration of its integrity and prepare it for interpretation. A balanced judgment, based on a hierarchy of resource values and a systematic process of evaluation, is therefore essential for establishing an appropriate conservation methodology and treatment strategy.

2.3 LEGAL AND REGULATORY FRAMEWORK

Stipulations contained in the Government of Pakistan's Federal Antiquities Act 1975 (Act-VII of 1976)8 govern the Lahore Fort and Shalimar Gardens World Heritage sites. The following stipulations are relevant to these sites.

15 q Clause 3, stating that the Federal Government will constitute an Advisory Committee. q In accordance with the Act, the Federal Government, by notification in the Official Gazette, may declare any antiquity to be a protected antiquity for the purposes of the Act (Clause 10 [1]). There is also a requirement to fix a notification in a 'Conspicuous place of or near the antiquity.' q The Act is clear, regarding the uses of a protected monument or site. Clause 18 states: 'A protected immovable antiquity shall not be used for any purpose inconsistent with its character or for a purpose other than that directly related to its administration and preservation.' q Clause 19 clearly stipulates the fine and punishment in cases where the 'antiquity' is damaged or destroyed: 'No person shall, except for carrying out the purposes of this Act, destroy, break, damage, alter, injure, deface or mutilate or scribble, write or engage in any inscription or sign on, any antiquity or take manure from any protected antiquity.' Infringement is punishable 'With rigorous imprisonment for a term which may extend to three years, or with fine or with both.' (Clause19 [2]) q Clause 22 requires that 'No development plan or scheme or new construction on, or within a distance of two hundred feet of a protected immovable antiquity shall be undertaken or executed except with the approval of the Director General.' q Clause 23 (i) prohibits the placing of 'Any neon signs or other kinds of advertisement, including bill posting, commercial signs, poles or pylons, electricity or telephone cables and television aerials, on or near any protected immovable antiquity.'

References:

1. Lari, Yasmeen,Lahore Heritage Guide, Heritage Foundation Pakistan, 2003, p. 1.12-1.21 2. ibid., p. 1.12-1.21 3. UNESCO,Cultural Tourism in Lahore and Peshawar , Islamabad, 2003, p. 86 4. Operational Guidelines for the Implementation of the World Heritage Convention, UNESCO World Heritage Centre, 2005, paragraph 77, p. 19-20.

5. ICOMOS Australia,Charter for the Conservation of Places of Cultural Significance ( The Burra Charter), 1999, Article 1.2, p.1. 6. Fielden, Bernard and Jukka, Jokilehto, Management Guidelines for World Cultural Heritage Sites, ICCROM, Rome, 1993, p. 59 7. Burra Charter, op cit., Article 2, p. 1. 8. Federal Antiquities Act 1975 (Act-VII of 1976), paragraph 1.

16 PART 3

Theoretical Framework

17 18 PART 3 THEORETICAL FRAMEWORK

3.1 GUIDING PRINCIPLES TO ACHIEVE A LONG-TERM VISION

The following principles below reflect the theoretical approach taken by the study team when designing the Master Plan. These clarify the framework within which work has been carried out.

3.1.1 Maintenance of the authenticity and values of the site

The study team adopted the principle, stated in Article 2.2 of theBurra Charter , that the single most important aim of conservation is to retain the cultural significance or authenticity of a place; the 'Aesthetic, historic, scientific, social or spiritual value for past, present or future generations.' The study team also acknowledges the Draft Hoi An Protocols for Best Conservation Practice in Asia, regarding prerequisites for conservation and maintenance of authenticity. They state that:

'The authenticity of monuments, buildings and structures is integrally linked to the temporal narrative embedded in their fabric. Understanding the chronological development of a monument and the multiple and complex structural, spatial and decorative layers which result is essential to the conservation of authenticity.'1

It is essential that the values that give the Lahore Fort meaning and significance are clearly stated, and that all preservation efforts focus on retaining these. Tables 3.1 and 3.2 present a preliminary statement of those values that make the site significant, and, as such, are elements that must be safeguarded.

Given that values can change in nature and perception, they need to be reviewed periodically; listing further values and broadening the focus to protection of all significant values by complementary management.

3.1.2 Safeguarding all original remnants is a conservation priority

The study has taken the position that 'The aim of safeguarding of World Heritage sites is to maintain their authenticity and the values for which they have been listed. Therefore, any treatment should be based on the strategy for minimum intervention.'2 All interventions should be reversible and should maintain the authenticity of the resource.

The original elements to needing to be safeguarded include those that have become valuable with the passage of time and changes in historical circumstances. These accumulated changes have themselves become part of the

19 historical character and material substance of the site: 'This material substance represents the intrinsic values of the cultural resource; it is the bearer of historical testimonies and of associated cultural values, both past and present. '3

John Marshall recognised the importance of retaining original fabric and its inherent values. HisConservation Manual , written in 1923, has served as the main reference for generations of custodians of the Shalimar Bagh:

'Although there are many ancient buildings whose state of repair suggests at first sight a renewal, it should never be forgotten that their historical value is gone when their authenticity is destroyed, and that our first duty is not to renew them but to preserve them. Broken or half decayed original work is of infinitely more value than the smartest and most perfect new work.'4

3.1.3 Decision-making must be based on full documentation and research

The Master Plan has taken the following statements from the Draft Hoi An Protocols to reflect the pivotal importance of research and detailed documentation to the conservation process:

'Decisions regarding the type and extent of intervention carried out as part of a conservation plan should only be taken after extensive research, expert discussion and weighing of conservation options. Intervention should be the minimum required to ensure the preservation of the heritage values and authenticity of a monument or building.'5

3.1.4 Conservation and management programming must be sustainable

All programmes and action plans addressing the protection and maintenance of Lahore Fort must be sustainable. This means that decisions are made on the basis of up-to-date, reliable and usable information and that all actions are at best reversible and the minimum required: 'Changing as much as necessary but as little as possible.'6 Actions must also be fully documented. Programming should be designed in such a way that it can continue along clearly defined paths, following well designed and focused methodologies regardless of administrative or staff changes at the site.

3.1.5 Tourism should support conservation needs - not conservation to meet the needs of tourism

The consensus of the Master Plan project team is that preserving cultural heritage and supporting creativity and living culture has to be given precedence. All efforts to promote cultural tourism need to include adequate controls to prevent the intrusive and destructive impact of tourism found at many historic sites. Proposals and recommendations need to ensure that tourist activities do not

20 undermine the authenticity and integrity of the historic structures. Intensification of tourism can only be justified if the major portion of all earnings is directed towards the maintenance of cultural assets and the communities on which tourism is based. Within these provisos, there is ample scope for cultural tourism to develop and benefit local communities.

CULTURAL VALUES

Identity value — The emotional ties of Lahore Fort is an icon for national identity, society to the site (aesthetic and spiritual acknowledged as such by all levels of society value, continuity, memorial, legendary, even if not fully understood. It is symbolic of political, patriotic and nationalistic). It is both historical and legendary versions of the based on recognition and the selection of past which are shared by all Pakistanis; a influences of a resource. tangible representation of Muslim rule in the subcontinent. It provides a link with the pre- colonial past reviving memories and sentiments related to a free subcontinent.

Relative artistic or technical value — The Lahore Fort preserves examples of all importance of the design and the architectural styles of the Mughal empire at significance of its technical, structural and their best. It constitutes a standing reference functional concept and workmanship. It is collection of architectural planning, materials, based on research and influences the methods and decorative traditions. The site strategy for treatment of a resource. retains the essential plan and design of the Mughal palace with assemblages representing all spheres of court life.

Rarity value — Defines the resource's Lahore Fort is one of two Mughal citadels which rarity, representativeness or uniqueness in can exhibit the work of all the great Mughals relation to other examples of the type. It is Akbar, Jahangir, Shah Jahan and Aurangzeb, in based on statistics and influences the level the nearby . It represents a of protection accorded to a resource. unique ensemble of Akbar's stone structural struts, Jahangir's frescoes with European imagery, the purity of Shah Jahan's classical order and the superb JahangirShah Jahan tile mosic mural depicting the grandeur of the Mughal Darbar.

Physical and Visual value — The value Lahore Fort presents an image of grace and inherent in the scale, location, physical grandeur above the Lahore skyline; a physical form and its impact on the viewer. It is form widely recognized. Physically and based on recognition and influences overall historically linked to the Walled City it forms a treatment, particularly of site setting. significant historical assemblage.

Table 3.1: Statement of the Cultural Values of the World Heritage Site

21 CONTEMPORARY SOCIO-ECONOMIC VALUES

Economic value — The value generated by Lahore Fort is a potentially rich economic the heritage resource or by its conservation resource with potential revenue generated in terms of potential revenue from tourism, through visitation and an appropriate commerce, use and amenities. It is based hospitality infrastructure in the vicinity; on inherent qualities and their marketing economic benefits could be felt in the Walled and influences community priorities and City community resulting from integrated future conservation funding. development. It has the potential for income generation for the community through craft- sales based on designs of the Lahore Fort.

Educational value — The extent to which a Lahore Fort provides a highly visible and resource can inform the present about its dramatic tool for informing the present about past in the context of cultural tourism. It is the many historical and cultural themes of based on assessment of physical integrity Pakistan's past; it contains a wide array of and historical research and influences re- didactic forms, both built and intangible, to use and interpretative decisions. enrich the visitor experience.

Recreational and Social value — The Lahore Fort stands at the physical centre of potential for social interaction and Lahore and the symbolic centre of the nation; as establishing community identity. It is such, it is the metaphorical property of a wide based on assessment and influences community. Involvement of the community in interpretation and presentation of the site safeguarding and caring for the site creates a sense of pride and commitment in all elements of and visitor interaction. society and strengthens social cohesion

Table 3.2 Statement of the site's contemporary socio-economic values

3.2 STANDARDS FOR INTERVENTION

3.2.1 Levels of intervention

The reason for selecting one level of intervention over others depends upon a number of factors, including the nature and heritage value of the building or site, the goals of the conservation project, the scale of the artefact being conserved and the financial and human resources available.

Most heritage conservation projects necessarily involve a combination of approaches, rather than isolated interventions. Thus, in a project seeking to return a building to an earlier appearance (restoration), it may be necessary to reinforce

22 historic structural elements (consolidation) upgrade entrances, exits, and services (rehabilitation), and, perhaps, dismantle a section in order to replace intrusive elements and support historic portions (reassembly).

To discuss various levels of architectural conservation intervention at the site, standardized terminology and definitions relevant to Pakistan have been adapted from theManagement Guidelines for World Cultural Heritage Sites and other international guidelines.7 Interventions are divided into those showing full, moderate and limited respect for the historic fabric of a building. A discussion of these various levels, their conservation implications and the circumstances under which they might be used, is presented in Annexure 5. They need to be fully understood by all those involved in conservation planning and regularly referred to during the decision-making process.

Prevention is an act that provides protection by controlling the environment, including internal and external causes of deterioration. Timely preventive measures can prolong the life of a historic asset at an economical cost.

Preservation is the act or process of applying measures necessary to sustain the existing form, integrity and materials of a historic property. Work, including preliminary measures to protect and stabilize the property, generally focuses upon the ongoing maintenance and repair of historic materials and features, rather than extensive replacement and new construction. The aim of preservation is to keep the historic property in its existing state and take measures to prevent further decay.

Consolidation is the act of physical addition or application of supportive material into the fabric of historic property, to ensure its continued durability or structural integrity.

Restoration is the act or process of reviving the concept of an object; to either an original state, or an appearance it had at a particular period or time. It requires returning it to a known earlier state by removing features from other periods in its history or re-assembling existing components without the introduction of new material. Restoration can also involve replacing missing or decayed parts, ensuring that this integrates harmoniously with the whole whilst also remaining distinguishable from the original on close inspection. Missing decorative elements in restoration work may be justified, but not by falsifying the evidence.

Rehabilitation is the act or process of providing for compatible use of a property through repair, alterations and additions, whilst preserving those portions or features that convey its historical or cultural values. Any changes made should be of a substantially reversible nature and cause minimal impact.

23 Reproduction is the act or process of copying an existing artefact, often to replace some missing or decayed parts. Generally used for decorative elements, it is not recommended for architectural elements.

Reconstruction is the act or process of using new materials on historical fabric. A necessity in the event of a disaster caused by fire, earthquake or war, it must be based on accurate documentation and evidence, not conjectures. It is not a recommended option in the context of Pakistan's heritage.

3.2.2 Selection of intervention level

The critical stage in the conservation process is deciding on which approach or approaches to take. This decision determines the extent to which the integrity of the historic fabric is retained. The preferred level of intervention is always that which shows full respect for historical fabric, maintaining and supporting existing fabric with a minimum of modern addition. Actions within the second level of intervention those which exhibit only moderate respect for original material should only be employed in exceptional situations and with detailed justification. Actions showing little respect for historical fabric should be avoided whatever the circumstances.

The reason for selecting one level of intervention over others depends upon a number of factors, including the nature and heritage value of the building or site, the goals of the conservation project, the scale of the resource being conserved and the financial and human resources available.

By necessity, most heritage conservation projects involve a combination of approaches rather than isolated interventions. In a project that seeks to return a building to an earlier appearance, it may be necessary to reinforce structural elements (consolidation), upgrade entrances, exits, and services (rehabilitation) and possibly dismantle a section in order to replace intrusive elements and support historic portions (restoration).

Efforts must be made to ensure: q that an appropriate assessment of conservation level(s) is carried out in advance of any conservation decision-making; q the assessment is based on authentic information and full documentation; q the assessment can be supported by following international standards and guidelines for conservation, listed in Annexure 8, and that all subsequent decisions include references to these standards; q that decisions are only made after full discussion between the custodians of the site, the project management team and the technical committee; q all decisions are publicized for public comment.

24 3.3 Prioritization of conservation interventions

Conservation actions need to be prioritized at a complex site like Lahore Fort, to ensure efficient and effective investment of time and money. Work needs to be carried out based on a needs assessment of the severity of the conservation situation. As stated in the Management Guidelines for World Cultural Heritage Sites, 'The inevitable contradictions of the planning process should be resolved first by examining the implications of all viable alternatives, and then by deciding which is least harmful to the significance of the heritage site.'8

Severity is the relative relationship between inherent significance of the site in relation to its current physical condition and the nature and extent of threats. The data needed to carry out this measurement includes statements of significance for individual built elements, regular monitoring reports and expert assessment.

3.3.1 Conservation situations

Conservation situations are categorized as follows.

a. Critical and in need of emergency and/or stabilizing action

Element(s) of high cultural significance are in poor condition. This is progressively worsening and there is imminent danger that qualities and features forming the basis of significance will be lost. Immediate action is required to substantially improve the situation, in both environmental and conservation terms.

b. Serious and in need of Preventive Conservation

Elements of high or medium cultural significance are in poor condition. This is progressively worsening and there is growing danger of damage to or loss of those qualities and features that form the basis of significance. The problem is serious and may have existed for a long time; however, short-term action begun within the next six to 12 months and completed promptly will significantly improve the situation.

c. Ongoing and in need of Conservation Action

Elements of high or medium cultural significance are in poor condition. Although of a long-term nature, with elements remaining relatively stable, there is a danger that this may eventually result in damage to or loss of those qualities/features that form the basis of significance. Longer-term action, in the form of studies, need to be started as soon as possible. Overall, the whole process will take a long time before any improvement can be seen.

25 3.3.2 The aim of prioritisation

The aim of prioritization is three-fold: a. to identify significant elements in each structure and in buildings as a whole, which are in critical condition and require emergency action; b. to identify serious situations, where progressive deterioration requires preventive conservation action to be taken in the short-term; c. to identify ongoing situations in need of study and longer-term conservation planning.

Initial steps have been undertaken as part of the catalogues presented in Part 5 of the Master Plan; individual elements and parts of buildings and buildings having been identified as being in critical condition and requiring immediate action. These sources will serve as the basis for planning and conservation at the site.

The Conservation Action Priority List in Part 6, section 6.9, lists those built elements at the site that require priority conservation action. However, the condition of historical resources does not remain static and it will be necessary to update and amend this documentation at regular intervals through regular monitoring.

Decisions as to what conservation action is required will need to be based on the condition surveys included in the catalogue, along with research into past interventions, maintenance (if any), and assessments generated through ongoing monitoring of the resource. All decisions should be made in the context of international best practice, set out in relevant charters and guidelines presented in Annexure 10. They will also need to take into consideration the relative significance of the resource and the nature and extent of the threats it faces.

References

1. UNESCO,Draft Hoi An Protocols for Best Conservation Practice in Asia, Bangkok, 2004, Section 5.2 2. Fielden, Bernard and Jukka, Jokilehto, Management Guidelines for World Cultural Heritage Sites, ICCROM, Rome, 1993, p. 75 3. ibid., p. 14 4. Marshall, John, Conservation Manual: A Handbook for the Use of Archaeological Officers and Others Entrusted with the Care of Ancient Monuments, 1923, 1990 Edition, New Delhi: Asian Educational Services, p. 9-10. 5.Draft Hoi An Protocols for Best Conservation Practice in Asia , op cit., Section 4.1.6. 6.The Burra Charter , op cit., Article 3.1, p. 1. 7. See Master Plan References. 8.Management Guidelines for World Cultural Heritage Sites , op cit., p. 23

26 PART 4

Inventory of Heritage Resources

27 28 PART 4 INVENTORY OF HERITAGE RESOURCES

4.1 BACKGROUND TO THE METHODOLOGY

Comprehensive recording and documentation are fundamental to any programme aiming to preserve the universal value and authenticity of a site like the Lahore Fort. The Government of Punjab Lahore Fort Project entrusted the Heritage Foundation Pakistan (HFP) with organizing, devising and directing a comprehensive heritage recording system for the site. The HPF is also responsible for training associated personnel from the Federal Department of Archaeology and Museums.

The recording methodology has been tailored to the requirements of the historic citadel. As a critical activity within the conservation process, this needs to be comprehensive and provide the necessary information for site's effective management.

Although records have been created over many years, they were not maintained in a systematic or comprehensive way. As this is a project objective, it was essential to develop a comprehensive recording system to provide a full record of the historic structures along with baseline information. This led to the development of formats for preparing a comprehensive conditions survey catalogue, as well as documentation catalogues for gathering detailed information to assist in conservation, maintenance, management and monitoring activities.

The recording systems developed by HFP comprises:

q baseline survey folios (Annexure 6); q dossiers of histories of intervention (Annexure 7); q a condition survey catalogue (Annexure 8); q documentation catalogues (Annexure 9).

Graphic and photographic records provide the information necessary for planning conservation and maintenance programmes. They are important for designing interventions, and provide a basis for further studies. For this reason, establishing a Project Documentation Centre (PDC) with properly trained personnel received the highest priority. Set up in May 2003, the PDC is equipped with computers, photocopying and printing machines and digital cameras. Extra computers, acquired in early 2004, further improved the Centre's performance. Meanwhile, personnel originating from the Survey Office of the Federal Department of Archaeology and Museums have been trained to perform their roles effectively and efficiently.

29 For ease of reference to historic assets, each structure is numbered according to a spatial configuration that acknowledges the monument is a garden palace comprising linked chahar- baghs (or introverted quadrangle spaces). Figure 4.1 contains a site plan, showing various structures and their numbering systems. The numbering system presented in Table 4.1 is included as a reference in all documents, annexes and reports. For ease of reference, Table 4.1 shows the numbering system for standing structures only.

The comprehensive system incorporates the following elements: q quadrangles and maidan; q buildings; q structures in ruins; q foundations; q basements.

No. Name of Structure Original Period Interventions 1. Diwan-e-Aam Quadrangle 1.1 Maidan-e-Diwan-e-Aam Mughal British 1.2 Diwan-e-Aam Mughal British 1.3 Daulay Khana-e-Khass-o-Aam Mughal Sikh / British 1.4 Kharrak Singh Haveli Mughal Sikh / British 1.5 Makatib Khana Mughal — 2. Moti Masjid Quadrangle 2.1 Moti Masjid Quad Mugal British 2.2 Moti Masjid Mughal — 2.3 Mai Jindan Haveli Mughal Sikh 2.4 Western Dalans Mughal Reconstruction 3. Jahangir's Quadrangle 3.1 Jahangir's Quad Mughal Sikh / British 3.2 Janoobi Iwans Mughal — 3.3 Mashriqui Iwans Mughal — 3.4 Mashriqui Suite Mughal — 3.5 Mashriqui Butj Mughal — 3.6 Bangla Pavillion East Mughal — 3.7 Jahangir's Khwabgah Mughal British 3.8 Maghribi West Burj Mughal — 3.9 Maghribi West Suite Mughal British 3.10 Maghribi West Iwans Mughal Reconstruction

30 3.11 Zenana Hammam Mughal — 4. Shah Jahan's Quadrangle 4.1 Shah Jahan's Quad Mughal Sikh / British 4.2 Diwan-e-Khass Mughal — 4.3 Kwabgah-e-ShahJahani Mughal Sikh / British 4.4 Hammam-e-Badhshahi Mughal — 4.5 Arx Gah Mughal — 5. Paien Bagh Quadrangle 5.1 Paien Bagh Quad Mughal Sikh / British 5.2 Imperial Zenana Mosque Mughal — 5.3 Kala Burj Mughal — 5.4 Khilwat Khana Mughal — 5.5 Lal Burj Mughal — 6. Hathi Reception Court 6.1 Hathi Reception Court Mughal — 6.2 Sikh Temple Sikh — 6.3 South Dalans Mughal — 6.4 North Dalans Mughal — 6.5 Gor Darwaza Mughal — 7. Shah Burj 7.1 Shah Burj Forecourt Mughal Sikh 7.2 Athdara Sikh — 7.3 Shah Burj Quadrangle Mughal Sikh 7.4 Shsh Lahal North Face Mughal Sikh 7.5 East Sehdara Mughal Sikh Sikh 7.6 South Dalans Mughal Sikh 7.7 West Sehdara Pavillion South Mughal Sikh 7.8 Naulaka Pavillion Mughal Sikh 7.9 West Sehdara Pavillion North Mughal Sikh 8. Shah Burj Darwaza 8.1 Shah Burj Darwaza Mughal — 8.2 Hathi Paon / Ghulam Gardish Mughal — 9. Pictured Wall 9.1 West Pictured Wall Mughal — 9.2 North Pictured Wall Mughal —

31 10. Miscellaneous 10.1 British Garages British — 10.2 British Bridge British — 10.3 Barood Khana British — 10.4 Imperial Kitchens Mughal — 10.5 British Shed British — 10.6 Akbari Darwaza Mughal — 10.7 British Steps British — 10.8 Alamgiri Darwaza Mughal — 10.9 Postern Gate British — 10.10 Curator Residencs British — 11. Fortification Wall 11.1 East Fortification Wall Mughal — 11.2 South Fortification Wall Mughal / British — 11.3 West Fortification Wall Mughal /Sikh — 11.4 North fortification Wall Sikh —

Table 4.1: Unique numbering system for Lahore Fort structures, showing their original period and any subsequent interventions

4.2 BASELINE SURVEY FOLIOS

Records developed through this process are designed to assist conservation professionals and specialists carrying out research, and in management, analysis and maintenance activities. Using accurate graphic, photographic and written data, they present the configuration and condition of various historic assets.

Information about standing structures has been developed to varying levels of detail, with records accordingly classified as detailed, medium and preliminary. For example, the intricacy of decorative features at the Shah Burj, and the need for its immediate conservation, meant recording it in detail. Shortages of time and personnel prevented other standing structures being documented to the same extent. However, many are documented to a medium level— for example, Jahangir's quadrangle, for which plans, elevations, section and preliminary schedules have been prepared. Other structures are recorded at a preliminary level only, using plan footprints, as is the case with the Alamgiri gateway. Recording work is, however, ongoing and those structures presently recorded to medium or preliminary level will eventually be the subject of a detailed examination. In phase two, the team will record the picture wall and basements to a detailed level. .

32 Fig. 4.1 Map of Lahore Fort with building and structure reference numbers

33 The HFP format requires each primary, secondary and decorative element to have a dedicated number, marked on the relevant measured drawing. Schedules, which are prepared for each structure, provide information regarding every element: its number, location, description, dimensions and condition, along with numbered photographs and period of intervention details, if known.

Thousands of pages of schedules have been supplemented with detailed measured drawings (plans, sections and elevations), along with numbers for each element. Documentation folios have also been compiled; for each room, in the case of the Shah Burj, or each structure, subject to the complexity and extent of the decorative features. As a first step, documentation folios are being finalized for standing monuments.

The detailed and comprehensive framework developed for the Lahore Fort meets the following objectives. a. A regimen of accurate and precise documentation has been instilled, essential for proper conservation work. b. Effective recording techniques and documentation system provide a comprehensive framework for recording a historic structure as complex and ornate as the Lahore Fort. c. The PDC has guidelines for forming teams to work at other heritage sites. d. The team is able to properly share records and documentation. Through computerization and digitalisation, they can widely disseminate soft copies of all records.

Baseline survey folios are in Annexure. 6.

4.3 HISTORY OF INTERVENTION DOSSIERS

Before undertaking any conservation work, it is important to develop an understanding of past interventions. The British Archaeological Survey began recording interventions, after taking over from the British military authorities. Work carried out after Independence was also recorded as it was done. Most of the intervention record reports are in the Library of the Federal Department of Archaeology at Lahore Fort.

A research cell, created within the Project Office to collect all relevant material relating to all structures at site, is now organising this in line with the Heritage Foundation's format. Several volumes of Dossiers of Historical Accounts and Records of Interventions to Lahore Fort have been prepared. They carry excerpts from all reports and printed documents that have been located. For ease of reference, each dossier contains an index for the excerpts found in it. The front page of each report, document or publication precedes the excerpts to allow accurate notation when documents are referenced.

34 Although most of the present excerpts are from pre and post-Independence Archaeological Survey reports, in future the intention is to add excerpts from other sources. In addition to being a source for conservation work, scholars and historians will also be able to use these.

The dossier format ensures that all reference material relating to alterations made in each structure is easily accessible, facilitating the planning of conservation work. It also allows dossiers to expand to include any additional material, including future interventions. These dossiers, along with baseline survey folios, are indispensable tools for conservation managers.

The histories of intervention dossiers are in Annexure 7.

4.4 CONDITION SURVEY CATALOGUES

Preliminary information concerning the condition of each element is included in the baseline survey folio. This is useful in assessing conservation needs of an element at a detailed level. To develop comprehensive conservation strategies, broader information about primary, secondary and decorative elements is required. Since the Master Plan aims to provide sufficient information to support the work of the Government of the Punjab Department of Archaeology, a room-by-room condition survey was developed, along with an assessment of areas of critical concern.

The survey systematically examines each structure and its subdivisions, recording the condition of material in each subdivision. The survey covers the following elements: roofs, ceilings, walls, columns, flooring, decorative features and miscellaneous items.

In addition to information recorded under each heading, a condition summary based on field notes is also attached. This information is based on visual examination, not a detailed study. However, this will have been carefully compiled and, by assessing condition for the first time, it will provide comparative baseline information about the condition of standing structures. The basements and picture wall have not yet been examined in the case of the former, because they mostly inaccessible and in the latter case because of difficulties posed by its great length and height. In future, an expanded and updated catalogue will cover the above structures and other areas not covered in the present study.

Although information is based solely on visual assessments, it is a valuable source; it will assist conservation managers in developing proposals for preventative maintenance, or commissioning in-depth studies for conservation work.

The Condition Survey Catalogues are in Annexure 8.

35 4.5 DOCUMENTATION CATALOGUES

The documentation catalogues have been specifically developed to help identify priorities for conservation work, and in maintenance and monitoring. The HFP format consists of a comprehensive two-page form for each structure. They provide easily accessible summary information, comprising:

a. graphic and photographic information, consisting of location on the site plan, plan footprint and a general view; b. written information consisting of name, location, classification of category, status, accessibility and present use, ownership, representation in existing surveys, description of condition, its period and a statement of significance; c. bibliographical references, dossier references, condition survey and baseline survey folio references, descriptions, brief histories and dates of known interventions; d. checkpoints for monitoring and maintenance schedules, remedial measures required and approximate costs.

These comprehensive catalogues will be useful tools when developing strategies or undertaking conservation work. Information about remedial measures emergency, stabilization, preventative maintenance and conservation requirements has been developed through visual examination and is of a preliminary nature. However, they do not provide information about the condition of various structures on a comparative scale, as every structure will have been visually evaluated in the condition survey catalogues.

The documentation catalogues will also assist the Department to prioritize work when funding is available. Other work for example, stabilization, preventative maintenance and conservation can be scheduled according to the severity of the problem.

The documentation catalogues are in Annexure 9.

4.6 RECORDING ACTIVITY BEFORE, DURING, AFTER

By developing an inventory of historic sources, the Department is now well equipped to undertake all conservation work in a systematic and logical fashion. For the first time a holistic picture of existing conditions exists, providing conservation managers with the information to ensure that funding is used in the most effective manner to preserve this World Heritage site. Table 4.2 summarizes the recording system and shows ways in which each part can be used in planning conservation work at the Lahore Fort.

The Master Plan envisages that all future interventions will be carried out in accordance with agreed and defined principles and guidelines. The re-hanging of the Shish Mahal ceiling is an example of how best-practice conservation work should be done, with

36 excellent and systematic workmanship following procedures which were properly recorded.

It is important that Article 16 of the Venice Charter is followed in letter and spirit, in requiring that there should be 'Precise documentation in the form of analytical and critical reports, illustrated with drawings and photographs.'1

With the baseline graphic and photographic information now available, it is critical that, as conservation work proceeds, it is not just interventions that are recorded but the discussion and planning process too. Reports need to be prepared for all works and made part of the history of intervention dossiers. This will ensure that future custodians fully understand work currently being done as part of this Master Plan.

Document Aim of the Document Summary of Contents

Baseline Survey To assist conservation managers Detailed recording of each element Folios in planning maintenance and of every building/structure; graphic conservation and preparing records including plans, elevations, detailed works proposals sections, photos and preliminary schedules

Dossiers of To serve as a reference for Copies of all reports, publications Histories of conservation managers in and documents describing past Interventions planning maintenance and interventions to each building/ conservation structure

Condition Survey To assist conservation managers Details of materials and condition Catalogue in developing proposals for of all primary, secondary and preventive maintenance or decorative elements of each part of conservation work every building/structure

Documentation To provide detailed 2-page Plan and photo; name, location, Catalogue summaries of each building/ classification, status, use, condition structure at a glance; to be used and significance; cross references to in particular for setting other documents; history and date if conservation and maintenance known; checkpoints for monitoring priorities and maintenance and recommen- dation for remedial action needed with indicative costs.

Table 4.2 Summary of documentation and recording system

References

1. International Charter for the Conservation and Restoration of Monuments and Sites, (The 'Venice Charter'), adopted at the Second International Congress of Restoration, Venice 25-31 May 1964. Padova, Italy, ICOMOS.

37 38 PART 5

Current Context and Issues

39 40 PART 5

CURRENT CONTEXT AND ISSUES

5.1 SITE MANAGEMENT ISSUES

5.1.1 Custodianship and oversight

In mid-2004, the Government of the Punjab Department of Archaeology took over site management and administration; ownership, however, remains with the Federal Ministry of Culture.

The Provincial and Lahore City Governments were not previously involved in the administration of heritage sites, as this was a Federal Government responsibility. The resulting lack of coordination meant that Provincial and City Governments did not feel compelled to provide any assistance in protecting the monument. This was an unsatisfactory situation; not least, because the City is responsible for the site's immediate environment, including traffic movement, rubbish removal and preventing illegal building encroachments.

The official tourist authorities, the Pakistan Tourism Development Corporation (PTDC) and Tourism Development Corporation of Punjab, play no role in managing or directly promoting tourism at the site. They provide no input on display and use of the site for visitor enjoyment and education. Although the site forms part of the tour itineraries promoted by both organizations, they do not conduct special tours or provide special promotional material. Local tour operators are also not involved in any campaigns to promote the site, nor do they provide guides or arrange any special activities or events.

The lack of a coordinated strategic approach to cultural heritage management has encouraged ad hoc decision-making, resource allocation and conservation practice. Managers of Lahore Fort often have to make decisions with few guidelines, procedures and systems. The competence of cultural heritage managers is part of the problem, as their qualifications and practical experience may not properly equip them for their roles. In addition, they do not have the resources or support to implement standard conservation methodologies and link these to a strategic plan.

There is no regular inspection of the systems and work of the site management by any external agency. What needs to be done, how it is to be done and whether it is of an acceptable international standard, are decisions taken entirely by the

41 Department itself. Although the World Heritage Committee provides clear guidelines for maintaining and managing World Heritage sites, they have done little to ensure that they followed.

In December 2002, Pakistan submitted its six-yearPeriodic Report1 to the World Heritage Committee on legislative and administrative provisions and other actions taken for the application of the World Heritage Convention. This included the state of conservation of its World Heritage properties. In addition, there have been several visits by international consultants to the heritage site. However, these visits have been short and their mandate did not include checking conservation procedures. They were also conducted in the company of department officials, who are unlikely to point out actions that might not conform to World Heritage guidelines. By not looking closely into procedures, international consultants' visits provide reassurance and tacit confirmation of the status quo. Unfortunately, these visits may also have been used to justify and sanctify unacceptable work.

5.1.2 Enforcement of legal protection

As discussed in section 2.3, the 1975 Federal Antiquities Act2 provides various forms of legal protection to support the preservation and best-practice management of the fort. However, in almost every case there has been a failure to take advantage of this and the site suffers as a result.

q Although the Act stipulates that the Federal Government will constitute an Advisory Committee (Clause 3), this committee does not appear to exist. q Clause 18 of the Act is clear about the use that the protected monument or site may be put to. However, the spirit and letter of this clause are not enforced when permission is given for events to be held at the site. q In spite of the stringent fines and punishments laid out in Clause 19 for wilful damage to a monument, the Department has not been able to use these to protect structures from graffiti and other forms of vandalism. There are insufficient guards patrolling the site and the Department does not have the magistrate's powers necessary for their enforcement. q Clause 22 requires that 'no development plan or scheme or new construction on, or within a distance of two hundred feet of a protected immovable antiquity shall be undertaken or executed except with the approval of the Director General.' However, since such a clause is not incorporated in Building Bye-laws or Urban Planning Bye-laws of the Acts governing city development, Clause 22

42 has been contravened in almost all cases, unless the department had the foresight to acquire the land in the buffer zone. There is no local and provincial government legislation related to development that protects the 200-foot buffer zone around the site from encroachment, garbage, road works and the resulting damage to the site's integrity. q Clause 23 (i) prohibiting direct attachment of any item on or near a protected monument is regularly and systematically contravened. Unless this clause also becomes part of local government legislation, the citadel will continue to suffer from electricity poles and cables, handbills posting and other intrusions on the fortification walls. Despite the threat of imprisonment and fines, the Department's inability to act is obvious from a tour of the citadel's walls.

5.1.3 Staffing

One hundred and ten personnel are employed at Lahore Fort, comprising:

q two junior archaeologists (Curator and Assistant Curator); q a junior engineer (Conservation Assistant); q a junior gardener (Garden Assistant); q two supervisors and two foremen; q a clerk; q a khalasi; q an electrician; q a sikligar; q an engraver; q a kashigar (tile worker) and a mistry (bricklayer); q six tube well drivers and helpers; q four museum attendants; q 30 watch and ward staff; q 35 gardeners and bhishtis; q 13 labourers and seven sweepers.

Analysis of existing staff composition shows that watch and ward staff are the highest priority, with garden staff being the second priority and conservation staff the last priority. As a result, there is a serious shortage of specialist expertise in the wide range of skills needed to carry out the conservation and maintenance of a World Heritage site.

43 Because the Federal Department of Archaeology has not engaged experts for specialist advice, staff have to rely on sources within the Department. Consequently, they are unable to get timely advice necessary for proper execution of works. Those managing the site often find themselves in the difficult position of having to choose between what they know to be the correct conservation decision and what is demanded of them politically.

The conservation and maintenance teams are visibly under-equipped and have work with outdated and inefficient tools. This includes equipment needed for maintenance, conservation, laboratory facilities and documentation. The existing PIATR materials laboratory lacks equipment, and much of what it does have is unused because team members do not know how to operate it.

5.1.4 Training

The Pakistan Institute for Archaeological Training and Research was established to train professional conservation staff, to serve as a materials laboratory and to teach specific building crafts needed for conservation of Pakistan's World Heritage monuments. It has facilities at Lahore Fort and some equipment. However, it has become inactive and urgently needs revamping and strengthening with more staff, improved buildings, equipment, research facilities and a curriculum focus.

The UNESCO report onCultural Tourism in Lahore and Peshawar3 recommended that the institute be reorganised as the Pakistan Conservation Institute. Although various institutions in Lahore teach architecture, including the and University of Engineering and Technology, none offers a degree course in conservation theory and principles or traditional building methods and building crafts. The only conservation course available in Pakistan is run by the NED University of Engineering and Technology, Karachi.

Since much protected heritage consists of standing monuments, it is essential to provide conservation training to architects and engineers. The lack of sufficient technical expertise within the Department is one of the key causes of inappropriate conservation work. By working with architectural and engineering schools to institute conservation courses, the Department will become stronger by being able to induct technical personnel familiar with conservation issues and able to oversee the work needed to safeguard heritage assets.

5.1.5 Past Master Plans

The first Lahore Fort Master Plan4 was prepared in 1973 and included conservation and restoration of all the site's important areas. Work continued

44 until 1985, exceeding original cost estimates but completing only 25 per cent of the proposed work. No detailed report is available. A Technical Committee was convened to assess the situation in 1985; it proposed concentrating restoration efforts on several individual buildings. Development schemes were subsequently prepared for work in specific areas of the site. These are listed below, with comments on their status in parenthesis. a.Scheme for the Preservation and Restoration of Shish Mahal. (Revised in 1991, planned completion date 1997; report missing. Extent of works carried out uncertain; work suspended.). b.Scheme for Restoration and Preservation of Eastern Dalans. (Began in 1981-82, most work appears to have been completed; report missing.) c.Scheme for the Preservation and Restoration of Western Dalans. (Approved in 1992, work begun before revision in 1994 rescheduled completion for 1997. Revised again in 2002, with a completion date of 2006. No report; not clear what work has been carried out; work continuing.) d. Scheme for the Preservation and Restoration of Basement Chambers of Shish Mahal. (Approved in 1992-93, revised 1997. Work scheduled for completion in 2005- 6. No report available.) e. Scheme for Preservation and Restoration of Diwan-e-Aam and Diwan-e-Khass. (Prepared 1997-98; to be finished 1999-2000. No report. Technical Committee review and censure in 1997. Work scheduled for completion in 2004-5 is suspended.) f. Scheme for Preservation and restoration and Face Lifting of Southern Fortification Wall. (Part of a bigger programme under control of a special committee. No record.)

A specialist report, the History of Conservation Approaches and Interventions at Lahore Fort, highlights a number of fundamental problems, characteristic of these past conservation plans (the full report is in Annex 1). Its findings are summarized here.

The conservation of monuments or archaeological sites requires special expertise to cope with unexpected findings, their interpretation and treatment. Too often, a contractor appointed through the government tender system does not have these skills and uses inappropriate tools and methods on historic fabric. The existing contract system has resulted in a great deal of sub-standard conservation work, and irreversible loss of integrity to historic monuments.

45 Previous schemes have taken the form of PC-1 documents. These are designed to serve as applications for government funds for specific works, giving a brief background of proposed works and quotations for workforce and materials. The PC-1 normally provides only general information on civil works items. Schemes prepared on a PC-1 pro forma do not require detailed justification for proposed works; consequently, the information given on the pro forma fails to provide details about location and measurements of an item of work and is no substitute for a full and detailed report.

The lack of detailed work specifications in the PC-1 pro forma leaves the use of funds and decisions about treatment of historic fabric mostly to the discretion of the site supervisor. Much of the unfortunate and unnecessary intervention in evidence is probably due to these discretionary powers allowed under the present system.

Almost all of the schemes were revised, sometimes repeatedly; in most cases, because funds were not provided in accordance with the phasing envisaged in the scheme. Consequently, none have been completed on time. The planning of new schemes whilst previous ones are still in progress has also created problems for the department's staff, as the increased workload is not matched with additional staff. The result is that normal maintenance and repairs are abandoned, with buildings not included the new scheme suffering further neglect.

5.1.6 Funding procedures

In the past, the Federal Ministry of Culture annually allocated funding for Lahore Fort. However, the sum allocated was always grossly inadequate. The preservation budget, in addition to staff salaries, falls into two categories: funds for 'Annual Repairs and Maintenance' and funds for 'Special Repairs'. Recently, the Government of Pakistan has also provided funds from its development budget; funding also augmented by the international community in a few instances. The site generates around 3.8 million Pakistani from ticket sales each year, in addition to an unspecified though substantial amount generated from fees charged for special events and commercial use by film-makers. Yet, it has received an annual average of less than 650,000 Pakistani Rupees for regular repairs, maintenance and development. Even after including the money received for 'special repairs' over the last ten years, the site has given more to the government than it has received.

A number of bureaucratic obstacles had to be overcome before Federal Ministry funds could be spent on the site. Information about the National Budget,

46 announced in June, takes several months to reach the Department and its regional offices. Amounts are then allocated to various monuments. Gaining access to this money is also a lengthy and bureaucratic process. The Director has the power to spend up to only 25,000 Pakistani Rupees. For sums beyond this, detailed conservation plans and budget estimates in the form of 'Conservation Notes' are prepared for the approval of the Director General/Ministry a process that can only be completed by the end of November or early December, when half the fiscal year has already passed. A budget estimate then passes between offices until all objections and queries are settled, a process that can take several more months. Consequently, the earliest that approval can be received is often the middle or end of April. This leaves only two months before the end of the financial year, during which the Department has to implement of all the work. Inevitably, there is pressure to finish work quickly. Hasty execution and dependence on 'replacement and reconstruction' for quick results rather than painstaking preventive conservation, can be directly attributed to this system for the release of funding.

Additional funding comes from charges for events held at the citadel and from rent paid by the canteen and other concessions. Government of Norway funding of the Project for the Conservation and Preservation of Lahore Fort has made a substantial contribution towards conservation, documentation and future management of the site. In future, the Government of the Punjab will need to provide further funding.

There is no mechanism presently in place to attract contributions in kind, in the form of materials or expertise. This is a large, untapped resource base. There is also no formal procedure for acknowledging contributions made by public, corporate or individual sponsors. High profile recognition of contributions would help encourage more donors to give towards the maintenance and management of the site.

Issue 1: The need for a structured, multi stakeholder management system to guide conservation and management Issue 2: The need for a broader based and more efficient funding approach Issue 3: The unexploited potential for contributions in kind Issue 4: The lack of an acknowledgment mechanism to encourage donors Issue 5: The need for an informed management team to implement the Master Plan Issue 6: The lack of focused training in conservation and management

47 Issue 7: The need to identify basic job skills for all levels of staff Issue 8: The need for a clear definition of job scope for all levels of staff Issue 9: The need to integrate a variety of management tools into the system Issue 10: Isolation of the site custodians and lack of international and regional support

Table 5.1 Site management issues

5.2 CONSERVATION ISSUES

5.2.1 Overall conservation approach

Conservation efforts at Lahore Fort have been characterized by lack of comprehensive planning based on accurate needs assessments and international standards. The custodians of the monuments have followed an outdated conservation manual, written in 1923 by Sir John Marshall. Decisions to conserve have often been made arbitrarily, without reference to need or assessment of priorities.

As a result, the recent approach to 'conservation' has tended towards:

q reactive conservation without assessment of need and a clear statement of priorities; q refurbishment without adequate historical research, done by unskilled workers; q dealing with surface appearances, without addressing serious structural issues; q carrying out interventions without proper study or preparation beforehand; q replacing faded or slightly damaged original elements with new copies in similar materials; q partial or full reconstruction of structures on the basis of insufficient research and without clear identification of 'new' versus 'original'.

5.2.2 Prioritizing critical conservation issues

Archaeological excavations at Lahore Fort show that it is the last of thirteen cultural layers, with the earliest dating from 2,200 years ago5 . This sequence of occupations has created a mound of soil and mud brick that has not fully settled and does not drain properly. Consequently, there are continuous problems at the site with settlement of the structure's foundations and underground chambers. There is no proper dispersal of water; dampness therefore rises through the brick

48 walls, causing fracturing and disintegration. Leakage from old terracotta water pipe systems throughout the Fort further aggravates this problem.

The Twenty-third Session of the World Heritage Committee, meeting in 1999, acknowledged that the Shish Mahal, a decorated palace built in 163132 by Emperor Shah Jahan, was of critical concern. Water leakage during the 1999 monsoon season had exacerbated the damage to the exquisite mirrored ceiling. At the recommendation of Sir Bernard Fielden, the ICCROM consultant, temporary roofing was installed. Investigation of the roof also revealed that termite damage to the beams, although arrested by previous treatments, had left them weakened. The wooden strip and gutch framework, to which the ceiling mirror work is attached, was also sagging dangerously due to vibration and deterioration. Subsequent major works consolidated and strengthened the roofing system, conserving the decorative features of the ceiling.

Other critical conservation issues at Lahore Fort are as follows. a. Primary elements i. Walls q Rising damp in walls in underground chambers due to lack of damp proofing and lack of surface water drainage from adjacent areas. ii. Roofs q Seepage of water due to insufficient storm water drainage and defective waterproofing. q Termite attacks on wooden members. iii Floors q Lack of protection from excessive traffic and inadequate storm water drainage. iv. Columns, bases, capitals, brackets, lintels fabricated from stone q Spalling, structural cracks, deterioration of stone surface, marble 'cancer' in the Moti Masjid and Diwan-e-Khass, due to excessive pollution. b. Secondary elements i. Stone and marble architraves q Cracks, predominantly in top and bottom architraves and spalling of edges. ii. Stone and marble fretwork screens q Structural cracks, damaged portions due to displacement and disintegration due to exposed condition.

49 iii. Stone or marble overhanging eaves (or chajjas) q Displacement, damage and opening of joints. iv. Brick overhanging eaves ( chajjas) q Disintegration of bricks and loss of mortar.

c. Decorative features i. Frescos q In fragile condition, due to inadequate protection from natural elements and visitors' graffiti - examples include the fresco in the lower part of the picture wall and the upper portions of the seh dara (triple doorway) in Jahangir's quadrangle. ii. Marble or stone dado (izara) q Spalling of corners, discolouration and staining from inserted metal bolts. iii. Kashi kari (tile mosaic) q In fragile condition, due to inadequate protection from natural elements and, particularly on the northern side, excessive pollution. iv. Marble facing q Disintegration due to marble 'cancer', loss of top veneer, spalling and discolouration due to excessive pollution. v. Mirrorwork and manabbat kari q Loss due to dampness, which destroys the bond between the base and mirror; disintegration of themanabbat kari in lower parts, due to wilful damage by visitors. vi. Pietra dura q Loss caused by wilful damage - examples include the Shish Mahal Aiwan column bases during Sikh and British periods and damage in Naulakha caused by visitors.

Another important issue is the treatment of open areas within quadrangles and other open spaces. The present pattern of grass lawns and trees, most of which are not original, date from the British period. Detailed historical analysis into the past treatment of these areas is required, to determine whether they conform to the Mughal pattern of quads and open spaces. In the interim, it is important to reassess their viability as water seepage from lawns and shrub and tree roots are visibly damaging adjacent structures, foundations and archaeological remains.

It is important to address all of these conservation issues in order of priority, not in a random fashion and that priorities are determined through complete and thorough review of the conservation status of all of the site's built elements.

50 5.2.3 Procedures for implementing conservation work

The Department is undertaking conservation work at the site without sufficiently standardized procedures. There is a need to clearly identify the steps required, in order to ensure that subsequent work is justifiable, carefully planned and implemented.

At present, there is little reference to the many international guidelines, manuals and case studies available. Work in other parts of the sub-continent, Southeast Asia and elsewhere would provide useful models and new ideas and approaches. The PDC needs to have a well-stocked library of texts, articles, reports and access to on-line references.

5.2.4 Documentation

Full documentation of a World heritage site is a fundamental requirement. This includes maps, plans, architectural details, photographs, film and text. Custodians also record, in detail, every intervention into the site's fabric and form, documenting it a series of 'before and after' presentations.

A UNESCO report onCultural Tourism in Lahore and Peshawar6 highlighted the need for such baseline documentation at Lahore Fort - a need addressed, in part, by the ongoing project by creating a Project Documentation Centre at the site in May 2003, under the guidance of the HFP. Although the site had a drawing office producing surveys and drawings for work done at the site, there was no system for systematically documenting these. This resulted in haphazard and unrelated activity, driven by immediate needs or requirements determined by officials. The old drawing office had only manual equipment; a few sets of plan presses for storing drawings, basic survey equipment and some rudimentary furniture.

To assess the importance of existing documentation for future conservation work, a small Project Documentation Centre was established. It is equipped with three computers, including a laptop, a photocopying machine and a flatbed scanner with related hardware and software. It also has printing equipment for drawings and documents, along with a digital camera. The PIATR have provided a dedicated room for the PDC. Systematic work began, using drawings and schedules specially developed for the Lahore Fort by the HFP and their unique numbering system for each element, ranging from primary and secondary, to decorative features. Given the complexity of the site structures, particularly of the Shish Mahal, the HFP documentation procedure ensures that the specially devised schedules cover all aspects of each item. This includes preliminary condition and dates of intervention, along with photographic recording.

51 Before it could begin operating, the PDC team required training; only two of the team, for example, knew how to use a computer (a requirement for all team members). From May 2003, the team started carrying out important work that has formed the basis of subsequent conservation activity. In 2004, additional computers and photographic equipment further boosted PDC facilities.

The record consists of the following items.

a. Site Plan i. A British period map dating from the 1880s, based on an earlier Sikh period map. It does not appear to be based on a physical survey of the site and carries no levels. ii. A Department of Archaeology map prepared during 1970s, which took into consideration the site conditions. However, it is not based on a physical survey of the whole site and carries no levels.

b. Basic Drawings There are several basic plans, sections and elevations of various structures, prepared during the British period and dating from the early twentieth century. The drawings also show additions to Mughal structures, built to serve the British cantonment.

c. Photographs i. Archival photographs dating to late nineteenth and early twentieth centuries; the photographs, however, are not dated. ii. Post-1947 photographs of restoration/conservation works.

d. Reports i. Archaeological Survey and Department of Archaeology reports, showing interventions made over time.

To carry out systematic documentation that is easily retrievable, the HFP devised an inter-related numbering system. This provides a number for each structure as well as its primary, secondary and decorative elements.

The following work comprised phase one of the PDC programme (2003-04).

a. A topographical survey plan of the Lahore Fort, providing the traverse, location and footprints of all buildings, structures and spaces, along with gradients and spot levels. b. Detailed graphic and photographic documentation of the Shah Burj, including the Shish Mahal - essential, given the ongoing conservation work in

52 this and related structures. c. Preliminary graphic and photographic documentation of all other structures in the Lahore Fort, comprising floor plans of structures bordering the various quadrangles. These will be incorporated into the topographical survey map. d. Preparation of dossiers for each identified quadrangle/ building/ structure, based on information extracted from various Federal Department of Archaeology reports.

5.2.5 Conservation laboratory

The existing laboratory facilities comprise a tile workshop and a lime laboratory, both directly associated with Lahore Fort, as well as the Central Archaeological Laboratory, which is a national facility of the Federal Department of Archaeology. The tile workshop and lime laboratory produce materials for use in restoration projects within the site. The Central Archaeological Laboratory deals with conservation of artefacts, including ceramics, coins, paper and tile.

Several of the 10 members of staff have relevant qualifications and some specific skills. However, there have been no opportunities for further training or upgrading of skills.

Set up in the 1960s and 1970s, the laboratories have received little or no upgrading since in terms of equipment and materials. All of the equipment and machinery is outdated and most no longer works - or if it does, no one knows how to use it.

An adequately equipped laboratory is therefore essential - one capable of handling the monitoring, maintenance and conservation requirements of a World Heritage site. In addition to up-to-date equipment and materials, upgrading the facility also means properly staffing it with appropriately trained personnel. The scope of its work also needs to be clearly defined and prioritized.

5.2.6 Archaeological repository

A large volume of architectural material has accumulated in various parts of the site. This is neither in inventoried storage nor on display. This valuable material is therefore unavailable for study or use in conservation, and is at risk because it is not under curatorial care. Most of it is material removed from various elements during restoration and reconstruction projects. There is a need to determine the original locations of these elements and if possible replace the facsimile with the original. All other material should be curated.

53 5.2.7 Skilled artisans in traditional building crafts

Conservation work at Lahore Fort requires a skilled workforce of artisans trained in traditional building crafts. Previously, a large number were trained whilst they carried out restoration and spent a lifetime working on the monuments under the Department's control. There were many opportunities to learn, since replacement and replication were then acceptable 'conservation' practices. As funding became scarce, artisans' posts were abolished and those formerly employed by the Department's took up other kinds of work. The long-standing tradition of master - apprentice training broke down. As a result, there is a serious shortage of young people training in and entering these trades.

In the limited cases where replacement and reconstruction occurs, work is let out to contractors who may or may not be able to employ the best artisans available. Whilst there may be a case for occasionally using contractors for specialized or specific tasks, the practice should be strictly discouraged for conservation work. There is ample evidence of unsatisfactory work by contractors that has been detrimental to the historic structures. This practice of awarding work to contractors, while trained artisans decrease in number, is the main cause of unsatisfactory work. Without adequate supervision, sympathetic conservation and restoration work is impossible.

Building a resource collection of building crafts, comprising examples of all materials, art forms and styles, would greatly assist in the conservation of Mughal architecture. This would serve as a design reference for staff training and to produce items for sale, based on historic motifs and materials in the collection.

Issue 11: The many critical conservation situations which need to be addressed and the lack of set priorities for addressing them Issue 12: The need for an updated, professional overall approach to planning and implementing conservation in keeping with international standards and guidelines Issue 13: The importance of a detailed and standardized documentation system Issue 14: The urgent need for a reorganized, focused and upgraded conservation laboratory Issue 15: The need for a centralized system for storage of architectural fragments, material samples, artifacts etc. with computerized inventory Issue 16: The need for re-installation of original building elements Issue 17: The lack of publications and other resources on conservation issues

54 Issue 18: The shortage of trained skilled artisans in traditional building crafts to carry out conservation work Issue 19: The need for a resource collection of building crafts for conservation work and for product design Issue 20: The importance of in-house execution of conservation works rather than reliance on outside contractors

Table 5.2 List of conservation issues

5.3 MONITORING AND MAINTENANCE ISSUES

5.3.1 Routine monitoring and maintenance

There is no comprehensive and systematic monitoring of building condition or maintenance of structures at Lahore Fort. The current situation is described in Annexure 2, Management and Monitoring Systems for Conservation and Preservation of Lahore Fort. This is largely due to staffing limitations. There is, for example, only one Assistant Archaeological Engineer to maintain and monitor all the monuments in the care of the Northern Circle. At the site, one Archaeological Conservator and three members of staff are responsible for all specialist maintenance. The wide range of professional expertise needed to safeguard such a large and complex monument is lacking, with inevitable results.

Routine maintenance is based on verbal instruction; systematic records are kept only in exceptional circumstances. Separate systems do not exist to monitor the condition of the monuments and implement required maintenance. There is only one team doing this, with no system of cross-checking and certification. In addition, no specific research or site investigations are carried out in advance of conservation and maintenance interventions.

5.3.2 Monitoring of conservation works

In the past, the Federal Ministry of Culture, Sports, Youth Affairs and Tourism monitored conservation work done by the Federal Department of Archaeology on approved master plan or development schemes using PC-IV and PM-I pro formas. Designed for use on new work, these pro formas, which are still used, are unsuitable for monitoring conservation work because they do not provide adequate baseline information about the buildings and interventions.

This is highly unsatisfactory because the lack of baseline information and absence of an efficient reporting and monitoring system creates a situation where the decision to follow accepted conservation principles is left to the discretion of

55 those actually executing the work. Given that the quality and expertise of those executing work varies enormously, careful and systematic monitoring is critically important.

5.3.3 Maintenance of ruins and archaeological remains

There are a number of areas with ruins and structural remains at or just above ground level at the site. At present, there is no specific protection or maintenance of these remains and they are subject to damage by the elements and people walking and climbing on them. Fabric and built elements are being dislodged and eroded. Continued damage of this kind will result in the loss of important archaeological evidence.

5.3.4 Cleaning of monuments

Over several decades, the department has concentrated on conservation and restoration and paid insufficient attention to the basic cleaning of historic structures. Federal Department custodians could recall only one instance, when the Naulakha Pavilion was cleaned with Sepiolite, and that was several decades ago.

Grime, fungi and deposits of chemicals have accumulated on all surfaces, resulting in damage to an extent that remains undetermined. The failure to clean these may have due to a misapprehension; that this would remove a protective patina that had formed on these surfaces, and was therefore neither a desirable nor an essential part of a maintenance programme. It may also have been due to lack of staff to undertake such work. Whatever the reasons, the result is that today, from a distance, the Lahore Fort appears a desolate, derelict and unkempt site; the opposite of the glorious image it should present.

Cleaning is important, and not solely for appearance. It is not possible to make informed decisions about the maintenance and conservation of monuments when they are covered in filth. Regular cleaning is a necessary first step in the conservation process.

5.3.5 Damage from watering of plants

Another source of damage is the dampness caused by watering plants in close proximity to structures. In the case of the foundations of thedalans , on the perimeter of the Maidan-e-Diwan-Aam, shrubs planted in the area enclosed by the foundations of cell walls are regularly watered. This damages the remains.

56 Issue 21: The lack of regular and systematic monitoring of the site Issue 22: The lack of regular maintenance of the site, based on need Issue 23: The need for a system to monitor conservation works carried out by the department and under department supervision Issue 24: The need for an approach to the maintenance of ruins and ground level archaeological remains Issue 25: the general filth of the monuments and need for regular cleaning, Issue 26: The need for a review of the planting regimen in view of damage being caused to remains / structures / foundations

Table 5.3 Monitoring and maintenance issues

5.4 RESEARCH AND PUBLICATION

5.4.1 Overall situation

The current state of knowledge and research at the Lahore Fort is characterized by a lack of focus and breadth. No formal research programme is presently in place at the site, although various initiatives have begun as part of the Government of the Punjab's Project for the Conservation and Preservation of Lahore Fort.

To develop a greater understanding of the Lahore Fort and its context, plan and configuration, it is important to develop the means to allow scholars to continue interpreting its historical layers. Historical data and information generated through research will enable an authentic presentation of the site to visitors by bringing the Mughal era to life through its association with the different quarters and quadrangles.

Many questions remain unanswered, due to lack of systematic and sustained research in past decades. Translations of material available in English provide insufficient information about the citadel's buildings, incremental additions to these and use of various quarters. Only a few contemporary historians' accounts have been translated from Persian into English or Urdu, and there is a great need to develop other source material in Persian located in many libraries in Lahore and elsewhere. In the past, there was little emphasis on research within the Department itself; in spite of housing one of the finest antiquarian libraries, there are not even bibliographies of source material.

The present Government of the Punjab Project for the Conservation and Preservation of Lahore Fort started to address this need in 200304, by compiling

57 dossiers in the HFP format to provide source material on interventions.

A proposed Pakistan Conservation Institute7 would also contain cells to address these needs. Meanwhile, some of the components are already in place in a nascent form as part of the present Government of the Punjab Project for the Conservation and Preservation of Lahore Fort. The various components now need organizing, and the additional funds sought to make them fully functional and able to inter- relate with other components. These will then provide the necessary information and background to conservators and researchers, as well as enabling those presenting various aspects of the Fort to do this in an authentic fashion.

5.4.2 Publication

At present, there is no publication policy or strategy and very little material about the site has been produced. The Archaeological Reports contain some; however, given the importance of the site, there needs be a constant flow of information; of not only work undertaken but also in-depth studies and research based on historical records. Publications need to be available in both print and electronic soft copy for the widest possible dissemination.

5.4.3 Archaeological research

In 1959, a major excavation examined the stratigraphy of the mound on which the site is located. An area, 180 feet by 60 feet in the southeast portion of the Maidan, was excavated to a maximum depth of 50 feet. The continuous series of twenty cultural levels recorded date from the British period, through to pre-Mughal deposits. The Mughal levels revealed multiple layers of intensive and large-scale building activity. Below a seven-foot layer of debris and fallen mud brick indicating disturbance, a clearance revealed a 12 foot-high wall of mud bricks possibly representing the non-Muslim mud brick fort recorded as having been sacked by Mahmood of Ghazni during his sub-continental campaigns.8

No other archaeological investigations have take place, with the exception of incidental excavations associated with conservation works.

5.4.4 Library

The present Library is a valuable research resource. It contains some rare publications dating from the eighteenth century, along with various archaeological survey reports dating from nineteenth century. In spite of being one of the best antiquarian libraries in Pakistan, it lacks adequate resources and equipment. There are not even funds for binding antiquarian volumes; there is

58 insufficient and unsatisfactory storage equipment; the furniture is old and dilapidated; and there is no modern equipment except a single computer donated by UNESCO in 2004. The manual index makes it difficult to locate research material.

Lack of control over book issuing is a major problem. All Department officers are entitled to borrow books from the library; many have not bothered to return the rare ones issued to them and many important publications and documents are now missing. Furthermore, the illustrations have been stolen from most of the library's remaining antiquarian books.

5.4.5 Archival material

A great deal of information in the form of archival maps and antiquarian photographs is housed in the Lahore Fort. However, material is presently scattered, un-catalogued and inadequately stored. This non-availability of information is a great obstacle to publication or conservation research. A full inventory of material is therefore required to improve ease of retrieval. Archival material also needs to be stored in an acid-free environment.

Issue 27: The lack of research and a research focus to induce scholars to undertake studies regarding various aspects of the Qila Issue 28: The need of a publication policy or programme to generate basic, reliable data Issue 29: The need for archaeological research. Issue 30: The need to upgrade the library at the site; enlarging the collection, equipment, hardware and library software Issue 31: The need to store and catalogue archival material located at the site

Table 5.4 Research issues

5.5 SITE VISITATION

5.5.1 Threats from uncontrolled visitation

Many visitors to Lahore Fort are largely unaware of the impact of their behaviour on the site. Some have inflicted a great deal of damage to original elements through graffiti on fresco work and other surfaces, some of which is irretrievable. Involuntary damage also occurs through treading on original pavements, climbing over walls and touching fragile decoration.

59 Details of visitation to Lahore Fort are contained in Annexure 3, Visitor Management Plan. Gate statistics reveal that in the peak month of March, up to 135,000 visitors enter the site; the lowest level is in the winter months (December and January). The largest numbers of visitors are concentrated into 10 or 11 public holidays, when as many as 35 to 40,000 people enter the site on a single day. It is doubtful whether such levels are sustainable at a World Heritage site, even one much better equipped, staffed and managed than the Lahore Fort. Most visitors come in groups of from four to 20 or 30 people, with men far outnumbering women. The majority of visitors belong to low and middle-income groups and arrive by public transport. The literacy level of most visitors is low.

Visitors follow undesignated routes, with most interest shown in the Maidan-e- Diwan-e-Aam and the interior of the Shish Mahal, as well as the and Badshahi Mosque outside the citadel. Large portions of the site within the citadel are never visited. This is not surprising, as signs only exist in popular areas.

Few activities or events are organized at the site, except for the free Karavan Pakistan events held for the first time in 2004. Other events are often for a select few invited dignitaries and guests, rather than the public as a whole.

The visitors' main interest does not appear to be the historical aspects of the site, but in using it for recreational purposes. There is little understanding of the monument's history and, accordingly, a general disregard for proper behaviour and treatment of the site as an important national monument. This is aggravated by a lack of creative signage, tours and sources of information for the visitor. Ensuring that visitors understand the significance of the site must be one of the main aims of the Master Plan and the overall approach to presentation.

5.5.2 Emergency protection of fragile elements

Some fragile areas of the site are at immediate risk from inappropriate visitor use and numbers. Emergency measures are needed to curtail damage while an overall policy for visitation and visitor control is put in place.

At present, there is no means to protect the monuments from visitor damage except by cordoning off certain areas and restricting access. Additional, indirect means education, information and persuasion - need to be developed and combined with direct methods. Where necessary, protective measures can range from complete closure of areas, to temporary barriers and increased numbers of guards.

60 5.5.3 Estimating visitor capacity

Visitor numbers, particularly the huge surges in public holidays, are far greater than certain areas of the site can accommodate. In addition to damaging fragile parts of the monument, this scale and pattern of visitation also compromises the quality of the cultural experience. Determining optimum visitor capacity is challenging because it means identifying the exact level beyond which negative impacts, particularly involuntary damage, becomes evident. However, tracking these impacts through a monitoring programme will at least provide the basis for setting approximate estimates of capacity. It will also help in designing measures to mitigate damage, particularly to fragile areas likely to suffer from excessive visitation.

Month Adults Children Students Total Nov. 1999 72,977 3,785 4,500 81,262 Dec.1999 25,294 7,35 3,150 29,179 Jan. 2000 74,132 3,989 2,300 80,421 Feb.2000 77,790 2,860 3,350 84,000 Mar.2000 124,209 5,667 4,500 134,376 Apr.2000 97,263 3,820 4,360 105,443 May2000 78,773 3,525 4,150 86,448 June2000 66,873 4,179 38,000 109,052 July2000 95,967 5,372 36,000 137,339 Aug.2000 87,158 5,435 32,000 124,593 Sept.2000 57,406 1,849 28,000 87,225 Oct.2000 70,495 2,419 10,315 83,229 TOTAL 928,337 43,625 170,625 1,142,597

Table 5.5: Visitor numbers from November 1999 to October 2000

5.5.4 Interpretation and education

There is no comprehensive policy on interpreting and presenting the site, except for a few boards erected in recent years. While an interpretative gallery would be effective source of information, there are also low-cost solutions to educating visitors. At present, these economical alternatives are lacking and need to be developed. They include proper signage, leaflets, and informed guards and local guides who can provide educational information to visitors in simple language.

61 There is also no educational material in local languages - Urdu, Punjabi, Pashto and Seraiki - and few knowledgeable local guides available at a rate most visitors can afford.

5.5.5 Museum displays

There are two museums at the site; the Fort Museum, located in Jahangir's Khwabgah, in Jahangir's quadrangle, and the Sikh Gallery housed in the haveli (house) of Mai Jindan. Both display some rare items; the Sikh Gallery is a particularly valuable but under-exploited resource for developing an understanding of the period when the Sikhs used the citadel as their base. Although both museums are a great source of curiosity to visitors, present standards of presentation are unlikely to satisfy this.

The following issues need addressing:

q there is no inventory of the paintings and artefacts housed in museums; q there is no printed brochure or other material available for information to visitors; q display cases, designed and installed through a Japanese initiative in the 1980s, are placed in front of alcoves with exhibits on their rear walls, a considerable distance from the viewer; q the glass surfaces of display cases are dirty; q the lighting system is inadequate; q exhibit black cloths are faded, torn and dirty; q the labels at the bottom of displays provide almost no information; q the labels are on faded and discoloured paper; q all galleries are dirty and in need of redecoration; q information panels in place in the Fort Museum are not being used; q valuable paper exhibits, including manuscripts, miniatures and paintings, are exhibited without environmental controls.

5.5.6 Young visitors

There are many visits by schools, especially during the cooler weather when constant streams of large parties visit different parts of the site. The citadel appears to draw more school parties than any other any monument in Pakistan, and therefore needs to offer a wide variety of activities to provide children with a means of interaction. At present, school groups, including the teachers, tend to

62 play ball games and leave mounds of fruit peel. However, such groups are amenable to advice and with a little effort can become champions for safeguarding heritage structures. While sensitizing the general public about the value of the historic site may appear a daunting task, schools as organized groups can easily be provided with information which will foster a greater understanding of the site and the behaviour expected while visiting.

5.5.7 Community outreach

In the past, no facility has existed within the Lahore Fort for liaison between the site administrators and the local community to involve them in its safeguarding. Residents of Lahore, and particularly the nearby areas, have had no involvement in caring for, interpreting or investing in the site.

Similarly, there are no programmes to engage women or other sectors of the community in safeguarding the site and developing a 'duty of care'. Ways to involve large numbers of people need to be put in place, so that every visitor becomes aware of his or her responsibility in safeguarding the historic environment.

The present outreach programme, run by Karavan Pakistan, encourages the involvement of schools in activities related to the site, as highlighted above. However, there is a great need to re-establish links between the Lahore Fort and its surrounding community through the youth and women of the walled city. This will not only recreate the lost relationship between the citadel and the community, but also promote income-generating activity that benefits the local community.

The Government of the Punjab Project for the Conservation and Preservation of Lahore Fort is taking steps in this direction; employing eight women of the site's housing colony on a half-day basis to clean site structures. The women are direct beneficiaries of the heritage conservation project, which has greatly improved their economic condition.

At present, the PDC is also acting as a proxy Karavan Pakistan office at the site. Because of the success of these recent events, and a vocal and visible expression of interest from the local community to be involved in the future of their heritage, a dedicated officer has been assigned to run a community outreach office at the site as part of the present project. However, to make this initiative fully effective it is important to develop a Community and Youth Outreach Cell (CYOC) as part of site management.

63 5.5.8 Restoration of historical access and links

At present, public access to the Lahore Fort is from the Alamgiri gateway; a ramp entering through the British postern gate and Shahjahani Hathi Pol provides vehicular access. The British built the ramp for easy movement of troops and equipment while the original Akbari gateway remained closed to the public. This controlled entry to the British cantonment, established in the Lahore Fort after the annexation of the Punjab. When the cantonment subsequently moved out of the site, its southern periphery was opened out; the creation of a large area of ceremonial steps there made for ease of surveillance and control. After Independence, this British period access route was maintained.

Studies for the UNESCO report onCultural Tourism in Lahore and Peshawar, and those carried out by the HFP, support the proposal that the original access from the walled city through Akbari gateway be opened to re-establish the historic link between the Lahore Fort and the walled city.9 This is important because it would revitalize the original Shahi route, providing access directly from the walled city's Delhi Gate to the Lahore Fort. Access to the walled city would become easier, with the diverse activities and ambience of the historic core heightening the site visitor's cultural experience whilst economically benefitting the community as a whole.

5.5.9 Tourist facilities

At present, visitor facilities are generally either insufficient, as is the case with the provision of toilets, or are inappropriately located - examples include car parking in Hazuri Bagh and the canteen and shops in Dalan-e-Sang-e-Surkh. Other facilities and services are poorly designed and intrusive in the context of the site, including the drinking fountains, ticket booth and limited signage.

There are no centres providing information about the site and its historical significance and no organized educational activities, particularly for the many visiting school children. Visitors are starved for information; when a new sign is put up, it is read by almost everyone. Activities, such as the UNESCO craft workshops in the Shah Burj, draw in people who are eager to talk with and learn from the participants. This is something that to be taken advantage of and developed.

5.5.10 Community craft production

There is a need to encourage women in the community around the Lahore Fort to make cultural products using the designs found in the monument's various structures. Planned first steps towards this involve encouraging women of site's

64 housing colony making handicrafts items for sale. These products will need an outlet: one that enables the women to sell directly. In collaboration with the PDC, the CYOC can provide facsimiles of designs and other information to help in the production of craft products.

5.5.11 Use of historical buildings and areas for events

The Lahore Fort is used for special events, usually for fund-raising when large numbers of elite are entertained while the site is closed to the public; sometimes for several days at a time. These events often involve food preparation, installation of lighting and sound systems, opening of fragile parts of the site to visitors and, occasionally, horses and fireworks. Although staging of theatrical events can bring vitality to the site and can be a valuable interpretive tool, there have to be restrictions on its indiscriminate use and guidelines for staging of events.

Similarly, plans to re-use historic buildings for tourism need to ensure that any modifications to meet contemporary requirements are appropriate and properly carried out. There are many instances where modern utilities and conveniences have been installed without due care for original fabric and materials, resulting in long-term damage to structures.

Issue 32: The need for emergency measures to protect fragile areas of the Qila which are being damaged by uncontrolled numbers of visitors and use of direct and indirect methods for controlling large numbers of visitors Issue 33: The need for assessment of the carrying capacity of the site Issue 34: Inadequate information about and interpretation of the Fort to visitors; the need for a comprehensive interpretive policy; the need to relocate visitor services and amenities to minimize impacts on the historic site Issue 35: The poor condition of the Museums and the sub-standard quality of displays and presentation Issue 36: The need to address a lack of understanding and the feeling of ownership and commitment within the community, particularly youth Issue 37: The need to recreate links with the Walled City and re-open original access routes to the site Issue 38: The need for guidelines on the use of areas of the site for special events Issue 39: The need for standards and methodologies to guide adaptation of historical buildings for modern tourism use

Table 5.6 Site visitation issues

65 5.6 ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE ISSUES

5.6.1 Overall situation

Environmental conditions in and around the site are a threat to its preservation and integrity. Details about existing conditions are in the Environmental and Physical Infrastructure Study, Annexure 4. Key issues include the impact from roads encircling the site, problems with drainage and solid waste removal, parking, access and electricity. The overall situation is aggravated by a lack of coordination between city authorities, responsible for infrastructure and services, provincial authorities, responsible for strategic planning in the area, and site management. This lack of integrated urban planning has led to the site being isolated from planning initiatives for its immediate environs. The result is a continual worsening of the environmental problems that adversely affect its structural fabric and fragile decorative elements.

5.6.2 Environment in the areas surrounding the site

a. Vehicle movement and resulting pollution Lahore Fort is surrounded on all sides by roads: the Grand Trunk or Circular Road on the north side, Fort Road on the east and south sides and minor access roads such as Hospital Road to the west. The present approach to the site is from the heavily congested Circular Road, via a narrow roadway opposite Iqbal Park. Parking is available for a limited number of vehicles in Hazuri Bagh. Traffic on Circular Road is the greatest source of pollution. This road is also used for parking vehicles, in the lane adjacent to the northern periphery of the site. This contributes to the accumulation of garbage and wastewater. The movement of heavy traffic causes excessive vibration, detrimental to the stability of the historic structures. It is also generates high levels of noise. Vehicle emissions from traffic and the nearby bus terminus are another source of pollution. The most pervasive problem is the suspended particulates in these emissions, which cause soiling of the buildings. Nitrogen dioxide seriously affects colours and materials, as do other emission-borne pollutants like ozone and hydrogen sulphide that bleach the colours of frescoes and alter pigmentation. This is a particular threat to the picture wall. The fumes and dust created by the high volume of traffic along the northern periphery of the site have also caused encrustation and corrosion. Proposed re-routing of most heavy vehicular traffic away from the site along the new Ravi Link Road will help in alleviating the problem. However, the main

66 polluters smaller vehicles and motor rickshaws need to be banned from this road; it should be open only to vehicles running on compressed natural gas (GNG). b. Encroachment in the environs of the Lahore Fort The Federal Antiquities Act10 requires a 200-foot buffer zone to be maintained around major cultural heritage sites. Many of the environmental problems facing the Lahore Fort today are a direct result of the failure to enforce this. In reality, there is no buffer zone in place; the result of a lack of coordination between the Federal Department of Archaeology and the local administration, and determined effort by all concerned parties. Encroachments into this buffer zone include major roads (the Grand Trunk and Fort Roads) light industry, a rim market, car, bus and truck parks, utilities and a garbage collection site. Areas of potential green belt, including Ali Park to the south of Fort Road and the area between the citadel wall and the Grand Trunk Road on the northern side of the site, are poorly maintained and rubbish-filled. Failure to maintain and enforce the buffer zone poses a number of potentially serious threats to the condition of the site, some of which are already evident. These include:

i. the impact of pollution, dust and vibration caused by heavy traffic, mentioned above; ii. encroachment of light industry in the buffer zones, resulting in air pollution and the dumping of garbage and industrial waste; iii. the use of Ali Park, in particular, as a dump for solid waste from the walled city, with two large containers for waste collection and numerous adjacent dumps of debris; iv. the use of this park by drug addicts, who contribute to its untidy, garbage- filled state; v. the lack of visitor's toilets at the Lahore Fort and Hazuri Bagh, resulting in open areas being used as public facilities; vi. defacement and damage to the citadel's walls, through graffiti, the pasting of posters, removal of building materials and direct attachment of high voltage cables and transformers; vii. the above factors all contribute to the general appearance of dereliction in the areas surrounding the Lahore Fort, presenting an extremely negative image of Pakistan's premier World Heritage site; an image that does not inculcate pride and a sense of proprietorship within the local community.

67 c. Integrated urban context Situated in the centre of Lahore and surrounded by dense urban development, the site is subject to the adverse consequences of encirclement by busy roads, factories, threatening encroachments and inappropriate urban land use. Failure to enforce the buffer zone exacerbates this; a no-man's-land of unauthorized structures and activities, it provides no protection to the site. Success in addressing the external environmental issues that affect the site will determine the effectiveness of its preservation. Its future is integrally linked to issues of population growth, housing and traffic control and routing in adjacent city areas. The site is presently a lacuna in urban land use and zoning plans, with no recognition of the need to use planning tools to protect it and to maximize its potential in generating cultural tourism. The proposed upgrading and control of the fort's environs will create a zone with high land values and development potential. Developing this area for cultural tourism associated with the site will inevitably lead to opportunities for income generation within the local community, particularly in the walled city. Clear guidelines need to specify what types of tourism and culturally related development are acceptable in the area around the site, in order to ensure its protection and maintain a suitable buffer zone and setting. Cultural heritage impact assessments are useful tools for evaluating development proposals and their potential impact on historical fabric, intangible cultural heritage and the cultural integrity of the site and the neighbouring walled city.

5.6.3 Physical infrastructure of the site

a. Sewerage and storm drainage systems The staff colony's existing sanitation system discharges wastewater into a common open drain that ends at the site's north wall. This wastewater then falls for 50 feet across the wall's surface. The colony's toilet facilities are minimal; they are unlit, in extremely poor condition and without flushing arrangements. Waste enters a septic tank and then an open drain, which discharges it onto the brick embankment wall near the picture wall. The staff colony's substandard drainage, sewerage and solid waste disposal systems are a source of many problems at the site, as well as for colony residents. There are 55 public toilet facilities at the site, of which only 21 are available for use. Most of the site's 'functioning' facilities either leak, causing structural and decorative damage, or do not flush. Storm water has caused serious damage in the southwestern part of the site, in the area of the administration offices and PIATR hostel. Saturation of infill

68 dating from the British period, on which these structures stand, has caused settlement and major structural damage to buildings. Along the citadel's north wall, near the picture wall, there are number of storm water outlet spouts on the wall, believed to be either Sikh or British additions. The strong winds that often accompany heavy rain blow water from these down the wall's decorated surface. Rising damp also affects this area of the wall. It is difficult to determine original drainage levels, gradients and courses. This information has not been recorded when new floors have been subsequently laid (and re-laid) in many areas of the site. It also likely that many of the original falls were even reversed, compounding the drainage problem. This lack of documentation about the historical drainage system hampers comprehensive drainage planning. Although the present Government of Punjab Lahore Fort Project has mapped some of the internal drainage lines, a lot more still need investigating. b. Water supply and distribution The site's water supply comes from two tube wells. In addition to providing water used to maintain the gardens and lawns, they also supply the offices, staff colony, outside road vendors and public lavatories at the site. One is located on the site's southwest side, across the road from Ali Park; the other is in the northeast corner, in the nursery area. Both function adequately but inefficiently, due to the age and condition of the pumps. Pipes, valves and hydrants are in a state of disrepair, as are the leaking and overflowing overhead tanks. The site management has not maintained water pipes and those supplying the rest house bathroom and the west suite of Jahangir's quadrangle have continued to leak for years, with disastrous results for the original structure. These leaks are still awaiting repair. A hydrant in the western section of Maidan-e-Diwan-e-Aam continues to leak, creating a constant puddle of water; it, similarly, continues to await attention. The worst example of this kind of damage to historic structures is in the northern chambers, caused by water leaking from ablution taps. Although they were finally blocked, it was only after severe damage to the chambers and a crack appearing in the Moti Masjid's northern wall. An unchecked leak in a first floor toilet pipe was also responsible for cracks appearing in the library building (one of the southern suites of Jahangir's quadrangle) and the Kharrak Singh Haveli.

69 c. Solid Waste An average 34000 visitors per day to the site, along with up to 200 employees and the families of 40 of these, generate solid waste. Trimmings, leaves and clippings from garden maintenance supplement this. This produces an average of two to three tons of solid waste per week, depending on the season and whether any demolition or construction works are in progress. Seventy to eighty per cent of this waste is biodegradable; the rest is recyclable paper, plastic, glass and metal or construction materials. Organic waste is buried for later use as compost. Other waste either goes into bins or is stored in open heaps. Sweepers empty the bins weekly, using fabric sheets to transfer waste into a collection vehicle. Some recyclable material is removed, but abandoned building material often remains in piles on site for long periods. Wells are also used for dumping solid waste, contaminating ground water. Perhaps the biggest issue is the large amount of rubbish thrown on the lawns and in other open spaces by visitors. This is not discouraged; though there are rubbish bins in prominent locations, visitors rarely use them. Site custodians appear to accept the throwing of rubbish around the site; this has to then be picked up. This is an unsatisfactory state of affairs: if people were encouraged to use bins, there would be less picking to do. Janitors regularly clean the grounds, although waste is allowed to accumulate in less well-visited areas.

d. Electrical systems and lighting The current electrical distribution system comprises five transformers located on site, of which four are active and the fifth used occasionally. All main cables into the site terminate at distribution boxes attached to the four corners of the monument. An additional overhead cable enters on the southeast side of Jahangir's quadrangle, the site's old office area. Brackets, installed by the Water and Power Development Agency (WAPDA) to support overhead main cables, are severely damaging the citadel's walls. These cables need re-routing to permit removal of brackets from the eastern and northern fortification walls. The distribution network is satisfactory apart from the distribution boxes, all of which are in poor condition and incapable of carrying any additional load. There is very little illumination in and around Lahore Fort, for either security or recreational purposes. The only interior lighting comes from recently installed floodlights, located at the Alamgiri Gate main entrance and in Jahangir's quadrangle. Any proposed illumination must enhance the overall

70 cultural experience, not just the recreational activities of evening visitors. Its installation and operation must not compromise the integrity of the historic structures.

e. Security The existing security system relies on manual monitoring of the site by Department of Archaeology guards, assisted by the recently installed floodlights mentioned above. The system is inefficient because there are insufficient guards and no system of accountability. Security in the museums on site is also inadequate, and a number of thefts have taken place in recent years. Although more guards are required, site staff also need greater powers to stop any destructive activities.

Issue 40: The need to assess alternative parking locations Issue 41: The need to reduce heavy traffic in the environs of the site, and resulting emissions. Issue 42: The need to remove offenders and upgrade the environment and ensure that controls are put in place to maintain standards within the buffer zone Issue 43: Setting up formal links at city government level to ensure that conservation and planning for Lahore Fort is carried out within an Integrated Urban Planning Context Issue 44: The need to establish Cultural Heritage Impact Assessment procedures Issue 45: The need to identify where uncontrolled water is damaging the monuments and find ways to control and reroute, including the removal of all toilets from historic structures Issue 46: The provision of better toilet facilities which do not adversely impact on the site Issue 47: Control of garbage deposition and a more efficient removal system along with Karavan “No-Litter” motivational and educational campaigns Issue 48: Removal of electrical facilities, cables and wiring which is directly impacting on monuments; design of a sympathetic illumination system for night time use of the site Issue 49: The need for improvement in lighting for evening use Issue 50: Upgrading security at Lahore Fort in general and specifically in the museums

Table 5.7 Environmental and physical infrastructure issues

71 5.7 STRENGTHS, WEAKNESSES, OPPORTUNITIES AND THREATS (SWOT) SITUATIONAL ANALYSIS OF THE Lahore Fort WORLD HERITAGE SITE

A complex array of strengths, weaknesses, opportunities and threats influences the future preservation and management of the Lahore Fort. The site is, without question, of extreme cultural significance to Lahore, Pakistan and the world. There is a high level of visitor interest in the site, even though the monuments are in poor to critical condition and visitors are offered virtually nothing in the form of interpretation or facilities. It is clear that the site's present vulnerability, and the accumulated dangers to it, threaten to overwhelm and negate its strengths. This is mainly due to a consistent failure in the past to maximize strengths, and create or take advantage of opportunities for developing the site's potential.

This situation is now changing because of the Government of the Punjab Project for the Conservation and Preservation of Lahore Fort. Implementation of an international standard documentation programme, creation of specialist crafts workshops and research cell, staging of community events at the site and formation of a community outreach cell all mark a substantial shift in approach in the right direction. These activities also form the initial phase in the restructuring of the hitherto dormant PIATR as a new and expanded Pakistan Conservation Institute.

A fundamental change in the approach to conservation is also taking place because of the involvement of national and international experts in emergency action to save the Shish Mahal's mirrored ceiling. In conjunction with discussions regarding the contents of the Master Plan, this programme is prompting radical rethinking on issues regarding appropriate levels of intervention and the protection of the authenticity of heritage resources.

References

1. State of Conservation of the World Heritage Properties in the Asia-Pacific Region, Pakistan: Fort and Shalamar Gardens in Lahore, p. 94-7. 2. Federal Antiquities Act 1975 (Act VII of 1976). 3. UNESCO,Cultural Tourism in Lahore and Peshawar , Islamabad, 2003. 4. Khan, Muhammad Ishtiaq,Master Plan: Lahore Fort Preservation and Restoration, West Pakistan Circle, 1973 (unpublished). 5. seePakistan Archaeology , No.1, 1964: p.55-6 6.Cultural Tourism in Lahore and Peshawar , op. cit., p. 7. ibid., p. 8.Pakistan Archaeology , op. cit., 55-6 9.Cultural Tourism in Lahore and Peshawar , op. cit., p. 10. Federal Antiquities Act 1975, op. cit., Clause 22.

72 Strengths Weaknesses — High cultural significance as reflected — Poor state of conservation and by World Heritage status maintenance of all parts of the site — Popularity with local and national — Inadequate documentation visitors reflected in visitor numbers — Lack of on-going research — Setting up of Project Documentation — Problematic management and funding Centre, workshops and other initiatives procedures — National and international expert — Insufficient trained staff involvement in conservation of Shish — Failure to integrate Lahore Fort into Mahal city planning and administrative — Close proximity of the historic urban systems Core and community of Lahore — Lack of community involvement in walled City custodianship of the site — Preparation of the Lahore Fort Master — Lack of economic benefits to the Plan community from Qila tourism — Dormant status of PIATR — Lack of a comprehensive vision of conservation

Opportunities Threats — NORAD-UNESCO-GOP project and — Established conservation approach associated higher profile at national level — Insufficient custodial care — Controlled use of the site as an — Environmental issues in and around educational and performance venue the site — Research potential of the site — Uncontrolled and uninformed — Creation of cultural tourism linkages visitation with the Walled City & its monuments — Continuing degradation of the Buffer — Associated economic benefits for local Zone due to lack of provincial and city Community level cooperation — Revival of PIATR as PCI — Lack of trained personnel — Availability of local youth as guides — Insufficient allocation and delayed and local women for production of release of funds women's crafts to spread tourism benefits to local community

Table 5.8 SWOT situational analysis at Lahore Fort World Heritage site

73 74 PART 6

Programme for Action

75 76 PART 6

PROGRAMME FOR ACTION

6.1 INTRODUCTION

This section of the Master Plan presents a series of integrated action plans developed from expert input and designed to address the issues highlighted in the previous parts of the Plan. These actions constitute the key processes of cultural resource management at Lahore Fort, the aim of which is to achieve the vision set out for the future of the site in both the short and longer term.

6.1.1 Short-term vision

In the short-term or first three years:

q identify historical buildings and features in need of emergency action and design and implement'-' first aid measures; q take all steps necessary to arrest further degradation of the monument; q put in place standard operating procedures for basic tasks carried out as part of the citadel's conservation and management; q engage a wide range of stakeholders in decision-making, framing this decision making in a context of national and international standards of best practice; q tackle environmental issues that can be addressed using existing means and start to formulate new approaches to solving problems requiring new partnerships and initiatives; q put in place monitoring and maintenance systems as the basis of sound conservation management; q set a design standard for information display and signage, put basic, first-step displays in place and provide maps, brochures and other sources of visitor information; q create a mechanism for on-going community and youth outreach; q create a framework for continuing research to form the basis of presentation of authentic information; q develop the means for ensuring that the grounds are well looked after and clean.

77 6.1.2 Longer-term vision

In the longer term:

q achieve the highest standard of conservation for all remaining historical elements of the site, in order to preserve its cultural significance and authenticity; q develop a holistic, efficient and practicable management strategy for the site; q upgrade the environment in and around the site; q enhance visitor enjoyment and understanding of the citadel, with further research to understand the history and significance of the site in its contemporary context.

The following simplified model (Figure 6.1), adapted from Best Practice in Cultural Heritage Management. Best Practice in Cultural Heritage Management,1 shows the process of cultural resource management proposed for the site.

In this model, heritage conservation and management follow a sequence of key processes starting with the identification and assessment of heritage resources. This follows through into maintenance, conservation, infrastructure development, research and public presentation of the site. There is a continuous feedback loop between each of the key processes and the strategic management process. Strategic management is a major process in itself that includes the organizational planning cycle and its links with external agencies.

The Programme for Action reviews the issues presented in Part 3 of the Master Plan. It defines the overall approach, framing issues as objectives and actions required to meet these. Table 6.1 shows the correlation between the issues raised in Part 3 and the action plan objectives presented below. It also recommends specific operational tools to assist in implementing proposed actions.

Each Action Plan is summarized below and, where relevant, fully appended in Annexes 2 to 4. Located at the end of this section, the Lahore Fort ObjectivesAction Plan 2006 2012 (Tables 6.49) presents each of the Action Plan objectives; its level of priority, target date for implementation, identification of milestones and responsible agents, and resources needed.

78 Resource Inventory and Assessment

Monitoring Visitation Plan and Maintenance Programmes Site Management Strategy

Research Conservation Strategy

Environment and Physical Infrastructure Plan

Figure 6.1: Model of cultural resource management

6.2 SITE MANAGEMENT STRATEGY

The role of the site management is 'to conserve the heritage resource and to serve the public interest, provided this is not detrimental to the site.'2 An effective management structure, mechanisms and tools must be in place to allow the team to administer in as informed and efficient a manner as possible. To meet this objective, a proposed site management strategy will integrate conservation, training and sustainable management tools into a system of consultation. The intention is to assist the site's custodians in efficiently manage it.

79 SITE MANAGEMENT Issues Objectives 1. Need for an integrated SMS 1 Proposed Management Structure: management system Site Commission + Technical Committee + Management Team 2. Need for diversified funding SMS 2 Diversified Funding Scheme approach 3. No way to accommodate SMS 3 Proposal for Friends of Lahore Fort contributions in kind 4. Lack of ways to acknowledge SMS 4 Recommendations to be implemented contributions through Friends of Lahore Fort 5. Uninformed management team SMS 5 PowerPoint workshops 6. Lack of training in conservation SMS 6 Pakistan Conservation Institute and related subjects 7. Basic job skills unidentified SMS 7 Core Competency training programme 8. Scope of jobs not well defined SMS 8 Standard Operating Procedures 9. Management tools under-utilized SMS 9 Logical Framework Analysis, UNESCO Heritage Audits, Risk Assessment and Management and Geographic Information Systems (GIS) 10. International and regional SMS 10 Recommendations for linkages and support network lacking networking CONSERVATION ISSUES 11. No set of priorities for carrying COS 1 Conservation Action Priority Table out conservation 12. Need for set procedures for COS 2 Step by step procedures for planning and carrying out implementation of Conservation conservation work work 13. Standardized documentation COS 3 Continuation of the existing Project Documentation Centre; Heritage Foundation formats for Baseline Survey Folios, History of Intervention Dossiers, Condition Surveys and Documentation Catalogues 14. Inadequate lab support for COS 4 Proposals for Conservation conservation Laboratory 15. Scattered and un-inventoried COS 5 Proposals for a centralized Materials architectural material Repository

80 16. Original elements unused COS 6 Proposals for the reinstallation of built elements 17. Lack of conservation library COS 7 Proposals for a Conservation Resource Library 18. Shortage of skilled crafts people/ COS 8 Architectural Crafts Training artisans Programme 19. Need for a craft resource COS 9 Proposals for a Craft Resource collection Collection 20. Employment of unskilled COS 10 Development of in house conservation contractors capabilities MONITORING AND MAINTENANCE 21. Lack of regular and systematic MM 1 Monitoring System monitoring of the site 22. Lack of regular maintenance MM 2 Maintenance System based on need 23. Conservation work carried out MM 3 Proposals for monitoring of with inadequate supervision conservation work 24. Ruins and above ground MM 4 Proposals for the protection of archaeological remains archaeological remains degrading and at risk 25. General filth of monuments MM 5 Systematic cleaning programme 26. Damage from planting and MM 6 Review of Plantation watering regimen RESEARCH 27. Lack of research and a research REF 1 Outline of a Research Framework strategy 28. Lack of publications of data REF 2 Lahore Fort Publication Programme and material 29. Lack of archaeological research REF 3 Programme of Archaeological Investigations 30. Poor condition of the library REF 4 Proposals for Library Upgrading 31. Archival material at risk REF 5 Proposals for Archival Collection SITE VISITATION 32. Unprotected fragile areas VIP 1 Emergency Protection Plan and uncontrolled crowds 33. No idea of appropriate VIP 1 Recommendations for Carrying visitation levels Capacity study

81 34. Lack of interpretation for visitors VIP 2 Recommendations for an Interpretive Policy 35. Poor state of museums VIP 3 Museum upgrade proposal 36. Need for community outreach VIP 4 Community Outreach Office 37. Severed historical links with VIP 5 Recommendations for Consultant Walled City Study of Links with the Walled City 38. Inappropriately located visitor VIP 6 Recommendations for relocation of the services and amenities canteen and other visitor services 39. Damage from uncontrolled VIP 7 Recommendations for Historical Site events and uses on site and 8 Use Guidelines and Adaptive Re-use of historical buildings ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE 40. Uncontrolled parking in EPI 1 Proposals for the revitalization of the environs of the site Buffer Zone 41. Parking issues and entry into EPI 2 Recommendations for parking the site arrangements and change of site entry 42. Impacts of heavy traffic around EPI 3 Phased approach to traffic rerouting the site and pedestrianization 43. Failure of communications EPI 4 Recommendations for an Integrated between site & city on planning Urban Conservation Planning and and management issues Land Use Study 44. No controls over development EPI 5 Cultural Heritage Impact Assessments in the environs of the site 45. Damage to the site from poor EPI 6 Long & short term recommendations drainage for drainage improvements 46. Inadequate and poor toilet EPI 7 Proposal for additional toilets in facilities appropriate locations 47. Litter and garbage on site EPI 8 Proposals for upgraded waste removal and community outreach initiatives 48. Electrical encroachments on EPI 9 Proposals for electrical upgrading and to the monument removal of encroaching facilities 49. Popular evening hours wasted EPI 10 Recommendations for evening opening of the World Heritage Site 50 Poor security arrangements EPI 11 Recommendations for improvements to security

Table 6.1: Correlation between the Issues raised in Part 3 of this report and the Action Plan Objectives

82 6.2.1 Overall strategy

The fundamental aim of site management is retain all those elements that make the place significant and give it meaning.

'What separates the management of heritage sites from other forms of property management is that the fundamental purpose of cultural heritage management should be to preserve the values ascribed to a site be they aesthetic or historical or social. Heritage sites are not simply visitor attractions, there to provide customer satisfaction and a reasonable profit. Such places are defined by the values we attach to them.'3

By using an approach developed by Parks Canada called 'Commemorative Integrity’4 , it is possible to evaluate the success or failure of Lahore Fort's current management. This examines a site's health and wholeness through three basic questions: q Are the resources that represent the site's importance impaired or under threat? q Have the reasons for the site's designation been effectively communicated? q Has the site's heritage value been taken into consideration in decision- making?

When we ask these questions about the Lahore Fort, the answers are all unfavourable; they tell us that the 'Commemorative Integrity' and authenticity of the site are seriously at risk and that management style and approach needs to change.

The following objectives aim to improve management at the site and identify the necessary remedial action. They form the core of the Site Management Strategy; Tables 6.4 - 6.9 present this and all other aspects of the Action Plan, giving priority, target dates, key responsibilities and resources needed for its successful implementation.

6.2.2 Site Management Strategy (SMS) objectives

SMS OBJECTIVE 1: Structures For Custodianship and Oversight a. Background to the strategy

Safeguarding the site's universal values requires a framework to be in place - a framework that ensures: q all stakeholders participate for the benefit of the site;

83 q compliance with Master Plan objectives; q periodic review of implementation procedures and direction for future activity; q consultation before any conservation work starts.

It must also ensure transparency, particularly where conservation work is concerned, making this a requirement for government agencies, non-governmental organisations or heritage conservation organisations. A lot of damage has already been done to the site in the name of conservation; without such a framework, more will undoubtedly occur in future.

TheManagement Guidelines for World Cultural Heritage Sites recommends setting up a Site Commission to effectively manage a World Heritage site. The Guidelines acknowledge that the professional and administrative structure of such a Site Commission 'may vary according to the situation in each country or the character of the site, but [that] its members should be experienced specialists from various professions. Also, it is in the interest of the World Heritage Site that the Site Commission's relation to the national government should be such that it has sufficient freedom of action.'5

In this respect, the Government of the Punjab's Project for the Conservation and Preservation of Lahore Fort has demonstrated its effectiveness. It has not only helped in changing the mindset of the Department of Archaeology, but also set the direction of future work.

A Project Implementation Team is in place. Consisting of a National Advisor, National Project Coordinator, Deputy and expert Technical Committee appointed by the team, they study all issues before any work begins. They have also been successful in continuously supervising and evaluating work in progress.

A Project Steering Committee also exists. Although its terms of reference are not as comprehensive as an Executive Committee or Site Commission's would be, it has been extremely useful in reviewing work done and setting directions for future work. This Committee will remain in place until the end of the present Government of the Punjab Project for the Conservation and Preservation of Lahore Fort in 2006. Thereafter, an Executive Board or Site Commission may be set up.

b. Proposed management structure for Lahore's World Heritage sites

Given the success of the present management approach, the Master Plan proposes the following structure for both of Lahore's World Heritage sites the Lahore Fort and Shalimar Bagh (Gardens).

84 i. Lahore World Heritage Sites Executive Board A high-level board, to be chaired by the Chief Minister, Government of Punjab and responsible for taking major decisions and ensuring cooperation between all agencies and stakeholders.

ii. Site Commission Comprising representatives from all interested bodies, the Site Commission will provide the forum where they will be able to actively contribute to safeguarding the site and its environs.

iii. Technical Committee Consisting of external experts in related disciplines, the Committee will provide advice and guidance and examine the impact of proposed works at the site. They will also check work in progress.

iv. Project Implementation Team Comprising department officials and an external advisor, this would be modelled on the existing project team. They will prepare proposals and be responsible for day-to-day execution of work. c. Composition and responsibilities

i. Lahore World Heritage Site Executive Board The Executive Board would comprise: q a Chairperson: Chief Minister, Government of the Punjab; q a Vice Chairperson: either the Federal Secretary, Ministry of Culture, Government of Pakistan or the Representative, UNESCO Islamabad; q Members: — Chief Secretary, Government of the Punjab; — Secretary, Department of Culture, Government of the Punjab; — two technical experts; q Member/Secretary: Director General, Department of Archaeology, Government of the Punjab.

The Executive Board would be responsible for: q appointing the Technical Committee, Project Management Group and consultants; q encouraging sponsorship of the Lahore Fort Heritage Fund; q approving ways of acknowledging contributions in money or kind; q directing ways to increase public awareness, communication and information; q approving policy on types and locations of activities.

85 The Executive Board would meet twice a year, with Vice Chairperson officiating if the Chairperson is unavailable.

ii. Site Commission The Site Commission would comprise: q a Chairperson: Chief Secretary, Government of the Punjab; q Members: — Representative, UNESCO Islamabad; — Secretary, Department of Culture, Government of the Punjab; — a representative from the Federal Department of Archaeology, Government of Pakistan; — Chairperson, Culture Standing Committee, Government of the Punjab; — Two Members of the Punjab Provincial Assembly (MPAs), one of whom should be a woman MPA; — Nazim, City District, Lahore; — Town Nazim, walled city; — Three technical experts. q Member/ Secretary: Director General, Department of Archaeology, Government of the Punjab.

The Site Commission would be responsible for: q implementing the Master Plan 20052011; q three and six-yearly reviews of the Master Plan; q referring any deviation from the Master Plan to an Experts Committee; q coordinating reports from concerned agencies on environmental issues and traffic management; q reviewing priorities identified by the Project Management Group; q determining ways to improve public awareness, communication, information and community and youth outreach.

The Site Commission would meet twice a year, with Vice Chairperson officiating if the Chairperson is unavailable.

iii. Technical Committee This three to five-member committee needs to include experts in the fields of architecture, archaeology and hydraulics and engineering. If required, additional members can be co-opted from a pool of relevant experts and consultants. Committee membership would be on a three-year rotational basis, with a new member joining every year.

The Technical Committee would be responsible for: q setting work priorities in relation to Master Plan recommendations;

86 q providing regular advice and guidance to the Project Implementation Team; assessing the impact of conservation proposals; q monitoring conservation activity; q reviewing consultants' proposals. iv Project Implementation Team The team will include a Team Leader, assigned from the department to solely work on the monument. The team would comprise: q a conservation architect; q a conservation engineer; q an archaeologist; q site supervisors; q a procurement officer; q an accountant; q a community liaison officer;

Conservation, maintenance and monitoring teams will work under the supervision of the Project Implementation Team. In turn, these teams will collaborate with the Documentation Centre, Research Cell and Community Outreach Cell. The Project Implementation Team will support the Community & Youth Outreach Cell.

The Project Implementation Team would be responsible for: q preparing proposals for work to be carried out in relation to Master Plan recommendations; q preparing detailed conservation proposals and procedures for implementation; q organizing conservation work and supervising this while it is progress; q developing proposals for protection, recording and research; q proposing ways to attract sponsorship for the attention of the Executive Board; q supporting community and youth outreach programmes and liaison with voluntary heritage organizations; q evaluating and submitting reports on the impact of municipal development and traffic projects around the site. v. Support organizations Community and heritage interest groups, along with other organizations, can play an important role in supporting the work of the site's custodians. The Master Plan recommends organizing a 'Friends of Lahore Fort' to harness the enthusiasm of voluntary sector groups who will be valuable in awareness and fund-raising work, and in developing site facilities like the laboratory and library. There are many examples of active and successful groups of this type in the region.

87 SITE COMMISSION (SC)

Tasks: l Appoint Technical Committee, Project Management Team and Consultants l Review Reports from Agencies re Environmental & Traffic Management l Ensure Implementation of the Master Plan l Oversee Review of Master Plan after 3 years and 6 years l Review Conservation Priorities Formulated by the Project Management Team l Encourage Sponsorships of Lahore Fort Heritage Fund l Finalize Mode of Acknowledgment for Contributions in Funds or Kind l Give Approval to Kind, Mode and Location of Activities by External Agencies according to Guidelines Set in the Master Plan l Determine Modalities for Public Awareness, Communication, Information, l Community and Youth Outreach l Refer Deviation from Master Plan to Experts Committee

Chairman:Chief Minister Punjab; Vice-Chairman: Federal Secretary, Culture Members: UNESCO/WHS Representative; Secretary Culture, Punjab; DG/Director Federal Archaeology; District Nazim Lahore; Town Nazim Walled City; Representatives of Lahore Fort Heritage Fund, Technical Committee, Project Management Team; Tourism Industry

Technical Committee (TC) Site Management Group (SMG)

Members: 3-5 Member Experts Members: Team Leader (UNESCO/ Dept of Committee Drawn from Archaeology), Conservation Architect; Architecture, Archaeology, Conservation Engineer; Site Supervisor; Hydraulics, Structural Engineering; Procurement Officer; Accountant; Community Additional members from Pool of Liaison Officer Members for Specific Activity. Tasks: Tasks: l Proposals for Execution in context of Master l Determine Priorities in Context Plan of Master Plan l Detailed Methodologies for Conservation l Provide advice, guidance to l Organize & Supervise Conservation PMT l Proposals for Protection, Recording, Research l Evaluate Impact of Conservation l Methodologies for Sponsorships for SC Proposals l Collaborate with NGOs for Community/ l Monitor Conservation Activities Youth l Review Consultants' Proposals l Outreach Programs l Submit Reports of Impact of Municipal l Development and Traffic in Qila Environs

Figure 6.2: Diagram of the proposed management structure

88 SMS OBJECTIVE 2: Adequate financial resources augmented by a diversified funding base

A focused approach to funding is needed; one that ensures the custodians of Lahore Fort have a flexible and diverse funding base with which to apply management decisions and carry out systematic conservation. Previous Federal Department of Archaeology funding fell far short of what was actually required. With the site's handover to the Government of the Punjab, more funding is being allocated. However, it is important to also explore other sources.

Figure 3 details alternative sources and additional approaches for building a sustainable funding base. The goal is to ensure that there is sufficient funding for periodic monitoring and site maintenance, as well as for emergency and longer-term conservation projects. The most effective way to achieve this is through the cooperation and active involvement of the site's major stakeholders: the local community, conservation professionals, site custodians and the tourism industry.

Funding for the preservation and management of the Lahore Fort comes from the following sources. a. Government allocation The Government allocation, or grant, funds salaries, utilities and systematic monitoring and conservation programmes at the site. The Government of the Punjab, who now administer the site, are responsible for making this allocation. b. Gate money Master Plan recommendations assume that gate money collected will go into a non- lapsable fund for direct investment in the site - an assumption based on an undertaking given by the Federal Ministry of Culture to this effect. As a working guideline, the Master Plan recommends diving gate revenue in the following ways: q fifty per cent for conservation and the proposed regular preventive maintenance programme; q fifty per cent is divided between research, outreach and visitation, to ensure bottom line funding for all main sections of the Master Plan.

c. Environmental fund The Site Commission would establish such a fund. They would be responsible for ensuring that this used to implement environmental and planning improvements. This would include addressing issues in the site's environs, such as buying out the rim market and special garbage collection. The Government of the Punjab Government is also expected to contribute to this fund.

89 d. National and international special project funding Provided for specific Action Plan projects or proposals, UNESCO should, through special project teams, manage the allocation of funding from international and national donors and sponsors.

e. Lahore Fort Heritage Fund Funds need to be readily available to tackle emergencies. Government funding, tied by administrative hurdles, is rarely available when emergencies occur. However, on many occasions immediate 'first aid' emergency measures can save historic fabric from major damage and greatly reduce subsequent costs. By establishing an endowment fund, it is possible to build up reserves for this purpose and other specific activities.

The Lahore Fort Heritage Fund would be an endowment fund. Anyone wanting to support the upkeep of the site could contribute. A Board of Governors would manage the fund, comprised of members contributing substantial sums - for example, 2 million Pakistani Rupees or more. The interest earned can provide funds for 'first aid' measures.

Ways of accessing or allocating funds could comprise: q on the basis of a First Information Report (FIR) issued by the Site Engineer/ Architect; q review and recommendation by the Project Implementation Team, confirmed by the Technical Committee; q approval of the Fund's Board of Governors; q on the basis of a completion report by Site Engineer/Architect; q through review of a completion report by Project Implementation Team, approved by the Technical Committee.

f. Crafts Fund Four craft workshops are currently operating, set up and supported through the present Lahore Fort project. The project has covered material costs and artisans salaries for two years. In future, revenue generated from the sale of craft products and replicas could go into a special crafts fund to help ensure the project's sustainability. However, further funding to establish more craft workshops will have to be generated separately. The potential exists for the project to continue on a long-term basis if there is sufficient output from the workshops and retailing is properly organized through site outlets, exhibitions and online sales.

Craft products are also an ideal way of generating visitor interest. Effective marketing of these would:

90 q provide regular employment to artisans involved in their production; q provide a workforce who would also be able to carry out conservation work; q raise visitor awareness of the value of traditional craft skills; q create a range of quality mementos of the site, based on authentic replicas; q help create a worldwide awareness of the value of the fort.

Proper marketing of craft workshop products requires a strategy, based on a study of small souvenir products that meet market needs and the standards necessary for their design and production. Although techniques, motifs and materials should be traditional, the products should need to be innovatively designed to appeal to the modern market. The strategy will need to plan for wide distribution and retail success, thereby increasing the financial returns of crafts production. g. Research and Publication Fund The Master Plan recommends establishing a revolving fund to attract donations in cash or kind to finance research projects. UNESCO could also assist in finding funding for this purpose. h. Retail outlets and sales at the site A percentage of all sales made at the site should go into to the Research and Publication Fund. i. Special Event Charges Activity organisers need to be aware of the site's historical significance, and events need to be compatible with this. Areas designated as fragile and of high cultural value are not for use. Wherever possible, events should be open to public. If admission is charged, it can provide an opportunity to raise funds for preservation of the site. A percentage of the takings should go into the Research and Publication Fund, to finance the development and dissemination of further public information.

TheUNESCO Lijiang Models for Co-operation6 provides a useful model for ways of integrating multiple stakeholders and funding approaches into a successful conservation effort. Based on Asian best practice in fiscal management and sustainability of heritage resources, these models and associated documentation are available on the world wide web.

SMS OBJECTIVE 3: A mechanism to take advantage of contributions in kind

Although large-scale funding is required for conservation and maintenance, contributions in kind and services will also add to the contribution base. Actively seeking and acknowledging these is a task for a 'Friends of Lahore Fort' group. They could also

91 create lists of goods and services needed at the site, actively seek donors and organise fund raising and publicity events.

Contributions can be in the form of materials, equipment and, most importantly, time donated by individuals with various skills wishing to participate in efforts to safeguard the site.

It is important to pursue programmes for contributions of expertise and knowledge from other parts of the world. Individuals with specific knowledge and experience in dealing successfully with environmental and conservation problems in historic sites elsewhere could, for example, be supported by their governments or other agencies to work on specific projects. These could include the conservation of Mughal frescoes or remedying the rising damp presently affecting buildings.

SMS Objective 4: Mechanisms for acknowledgement of contributions

All contributions of funds, materials, equipment or time need proper acknowledgment. Ways of doing this include: q discreetly placed plaques acknowledging support in the conservation of a specific building; q a large board at the entrance to the site acknowledging major contributors and the kind of assistance provided; q using the media to promote projects at the site, and their supporters; q producing flyers to update visitors on work-in-progress and planned projects, and acknowledging the support of organizations, corporations and individuals.

The Friends of the Lahore Fort could, in conjunction with the site's Documentation Centre, write prepare and distribute material of this kind.

92 FUNDING SOURCES

Government Allocation Administration, Salaries, Utilities, Systematic Monitoring, Ground Maintenance

Gate Money 50% for Conservation & Maintenance of Historic Structures; 50% for Research Community Outreach

Environmental Fund To be established by Punjab Govt; overseen by SC For Environmental and Traffic Improvement

Special Fund National/ To be coordinated by UNESCO for conservation International Sponsors by UNESCO Site Management Group

Lahore Fort Endowment Fund with its Board of Governors; Heritage Fund Interest to be Utilized for Emergency Works

Crafts Fund To be established for Sustainability of Craft Workshops

Research and To be Established for promotion of Publication Fund Research & Publications

Retail Outlets/ Sales Major % for Conservation & Maintenance

Special Events Charges Major % for Conservation and Maintenance

Figure 6.3 Diagram of the proposed diversified funding approach

93 SMS OBJECTIVE 5: An informed management team who understand overall conservation objectives and priorities / managing change

An agreed set of core plans and guidelines needs to drive all cultural resource management work at the site. They will need to demonstrate clear links between planning and operational activity, in the same way the Master Plan does. The aim is to provide a concise summary of values and principles to apply as a litmus test of departmental practices.

It is essential that all staff understand the conservation theory and guidelines that support the administration's approaches and decisions. The Management Guidelines for World Cultural Heritage Sites states that this must include 'ensuring that all site staff understand the cultural values to be preserved in the site.'7 Ensuring they do will engender commitment and increase motivation.

The Master Plan recommends using a number of specially designed PowerPoint8 presentations to target all staff, ranging from senior management to security and grounds staff. They need to summarize the Plan's overall intent and methodology, and integrated action plans and priorities, tailoring this to focus on the important role a given group will have to play in reaching Plan goals. By incorporating presentations into regular, twice- yearly workshops, there can also be discussion of issues raised. For conservation staff this will also provide opportunities to discuss the challenges they face and learn from each other.

The United Nations Educational, Scientific and Cultural Organization could provide support for conducting these workshops, in the form of PowerPoint presentations and coordinating overall planning with Project Implementation Team.

SMS OBJECTIVE 6: Development of the Pakistan Conservation Institute as a viable training facility

The existing PIATR provides training in archaeology and related topics. Archaeological training is also available at several universities in the country. However, the theory and practice of conservation is not taught anywhere in Pakistan and a study on Cultural Tourism in Lahore and Peshawar recommended that an institute be set up at Lahore Fort specifically for this purpose.9

The PCI would offer training at all levels in a wide range of fields related to the conservation and management of cultural heritage. This would include short term certificate courses and longer term diploma programmes; subjects would range from basic skills to specialist training, both theoretical and hands-on, with an emphasis on training future trainers to extend skills through institutions and departments across the country. Curriculum planning at the PCI will draw on a comprehensive interpretation of what contributes to good conservation, as well as identifying those who can both provide and benefit from new skills and upgrade existing ones.

94 PAKISTAN CONSERVATION INSTITUTE Restructuring & Upgrading of PIATR

Board of Governors Federal Secretary, Ministry of Culture, Representatives of Federal Department of Archaeology, DGs of Provincial Departments of Archaeology, Culture and Tourism, Public and Private sector Universities, Heritage NGOs, Experts

Conservation Training Documentation Centre

llPost-graduate diploma in Graphic and Photographic ConservationStudies Documentation, Condition Surveys, l Certificate Courses in Conservation Inventories, Recording Related Topics and Heritage Guides l Training of Trainers

Laboratory Research & Publications

llUpgrading of Existing Laboratory Upgrading of Existing Library llProvision of Suitable Equipment Acquisition of Conservation l Training of Trainers Publications, Academic Publications l Publications Related to Conserva- tion Issues, Manuals, Reports etc.

Building Crafts Training

l Training under Master Artisans l Improvement of Production Techniques l Production of Cultural Replicas

Figure 6.4 Diagram showing the formation process of PCI

95 Formation of the Board of Governors

Funding Sponsorships

Appointment of Director and Assistant Director

UNESCO Asian Design of Programme Upgrading Venue Academy for Heritage based on Best Practice and and Basic Technical Management identified trainee needs Resources

Enlisting of Training Providers

Begin Training at PCI

Figure 6.5 Diagram showing the structure of the Pakistan Conservation Institute

SMS OBJECTIVE 7: Core Competency training for all levels of staff to upgrade skills and build capacity within the department

Training in core competencies needs to comprise the first stage of a conservation training programme. The Lahore Fort management have identified this as being essential for the following staff at the site. q Site Cleaners. q Site Guards. q Gardeners. q Heritage Guides. q Virsa (Heritage) Volunteers. q Skilled artisans engaged in preventive conservation. q Skilled artisans engaged in maintenance. q Supervisors. q Technicians. q Utility Inspectors. q Assistant. Curator.

96 q Museum Curator. q Librarian. q Archivists. q Conservation Architects (post-diploma and refresher courses). q Conservation Engineers (post-diploma and refresher courses). q Conservation Manager. q Preventive Maintenance Managers. q Community/ Youth Outreach Specialists.

The Master Plan recommends a UNESCO consultancy to design training manuals for each of these job groups. By consulting employees, it should identify ways in which they can all best support heritage preservation efforts and advance the Master Plan's goals and action programmes. The UNESCO-ICCROM Asian Academy can assist in identifying core competency areas, designing training modules and providing tuition.

SMS OBJECTIVE8: Implementation of standard operating procedures (SOP) for frequently performed tasks to ensure consistency and maintenance of standards

A SOP is a systematic set of instructions for a common task in a specialized area. Designing and implementing a series of SOPs for essential management and conservation work at Lahore Fort will: q make people think about which tasks are essential; q clarify what these tasks should entail; q illustrate how various tasks depend on and compliment each other; q standardize the most efficient and productive ways of doing essential tasks.

Standard operating procedures clearly define everyone's responsibilities. Staff will know what to do, how and when to do it and the role they play in the overall conservation effort.

Standard operating procedures will evolve out of the core competency training exercise. By preparing detailed evaluations of the skills required for each job, it is then possible to itemize each job description. This will then highlight core common tasks for which SOPs should be prepared.

Ideally, SOPs are prepared as a group exercise by teams including people who: q perform the job; q design equipment used in an SOP; q perform maintenance on equipment involved in an SOP; q have an overall understanding of the management and conservation processes a given SOP fits.

97 SMS OBJECTIVE 9: The systematic integration of analytical management tools into the short and long term planning carried out by the custodians of the site

a. Logical framework analysis (LFA) Use of LFA needs to become standard practice, as an analytical, presentational and management tool. These help planners and managers: q analyze the existing situation during project preparation; q establish a logical hierarchy of means by to reach objectives; q identify the potential risks to achieving objectives and sustainable outcomes; q establish how to best monitor and evaluate outputs and outcomes; q present a summary of the project in a standard format; q monitor and review projects during implementation.

The product of this analytical approach is the matrix, or Log frame. This summarizes what the project intends to do and how, the key assumptions and how outputs and outcomes will be monitored and evaluated.

Many agencies, including UNESCO, either require or endorse the use of LFA. Their application in the planning of a programme and budget for future actions at the site showed how useful this tool is in guiding thinking and decision-making.

b. External UNESCO Heritage Audits Another recommended management tools for implementation is the UNESCO Heritage Audit. This ensures that the values for which the site was inscribed on the World Heritage List are being maintained. Section 3.1.1 of the Master Plan describes these values.

An independent group of experts appointed by UNESCO will review the entire site, carrying out a quadrangle-by-quadrangle and building-by-building assessment and preparing an independent condition report. The Audit should take place every three years, with the first one needing to take place immediately to identify baseline conditions for future comparison.

A Heritage Audit specifically examines the following types of issues. q Relative technical or artistic value: are characteristic crafts, motifs and materials being authentically maintained and skills supported?

q Rarity value: are all periods of Mughal and Sikh architecture and design being preserved with an appreciation of their strengths and differences?

98 q Physical and visual value: is the view of the site unimpaired by modern development and encroachment and does it present an image of a well cared-for monument? Are historical links with the city around it intact?

q Economic value: is there income generation at the site through well-planned economic activity, and is this being generated without negative impacts? Is the stakeholder community feeling the benefits?

q Educational value: is active research taking place and being disseminated to the community so that more is known now than before?

q Recreational and social value: are events at the site appropriate and is the community drawn into its care in an informed way? c. Risk assessment and management Cultural heritage faces many kinds of risks. These range from natural hazards, such as floods and earthquakes, to those attributable to human activities: fire and pollution; wear and tear, and the unexpected and unintended consequences of public visitation. TheManagement Guidelines for World Cultural Heritage Sites advises that 'special precautions may be needed against vandalism, theft, fire, floods and earthquakes.'10

The site needs a risk assessment and management study, as one has never been carried out before. The International Centre for the Study of the Preservation of Cultural Property has been active in developing and advocating the need for risk preparedness to protect cultural heritage. Their manual11 is a useful guide for defining the scope of such a study at the Lahore Fort.

Table 6.2 presents a Risk Assessment Model which can be used to monitor and evaluate potential risks at various stages of a project. At the planning stage it can encapsulate risk issues and help in formulating recommendations to address them. At detailed stages of a design more specific statistical input can allow for more focused mitigation to reduce risk to an acceptable degree. This model should be developed for Lahore Fort as a whole and for individual heritage elements and incorporated into the specialist study recommended above.

99 Hazard Hazard Vulnera- Risk = Mitiga- Residual Emerg- Probabilty bility HxV tion Risk ency (1=low- (1=low- ( H,M, (H,M,L,N) Plan 5=high) 5= high) L,N) High humidity/ salt corrosion Fire Storm Water Flood Waste Water Discharge Earthquake Thermal Stress Lightening Structural Damage Termites Birds/ Bats Bacterial infection Air Pollution Rubbish Traffic vibration Bombing Vandalism Theft Inappropriate fabric maintenance Cleaning Visitor accidents Loss of key staff Loss of funding

Table 6.2 Risk Assessment Model format

100 d. Geographic information systems (GIS) Geographic information systems provide an invaluable tool for centralizing and adding spatial information to textual based data. Geographic information systems are an efficient tool for responding to queries, enabling confident and rapid analysis of situations and visualizing of patterns, trends and relationships in data. It is particularly relevant in situations where the needs and demands of a number of agencies and interests need integrating to develop workable solutions.

GIS mapping of the physical planning and infrastructure of the site and its environs will allow quick highlighting of problem areas requiring impact assessment or immediate action. It is also an important tool for graphically conveying conservation needs to decision-makers and planners.12

The Master Plan recommends a UNESCO GIS consultancy. Its terms of reference would need to include the following points. i. Setting up of a purpose-designed GIS Database for the site: q developing a basic user interface to serve as a query tool; q rationalizing existing data; q standardizing existing and future data.

ii. Training of management team staff: q to ensure a sustainable programme; q based on elementary computer literacy; q designed to produce competent GIS Database administrators; q involving trainees at all stages of database development to build capacity.

SMS OBJECTIVE 10: UNESCO assistance in creating a support network of international collaboration and interaction

To a large degree, the site's custodians have been working in isolation with little of the valuable support that international or regional collaborative involvement can offer. It is only since 2003, and the start of present project, that they have started to build links with outside institutions and organizations.

TheManagement Guidelines for World Cultural Heritage Sites points out that 'an important issue in relation to the management of World Heritage Sites is to establish a process that gives a solid basis for international collaboration between those responsible for the site management and the various international bodies such as the World Heritage Committee, UNESCO, ICCROM and ICOMOS.'13 This could also include collaborative programmes, communication and exchange with academic institutions, research and non-governmental organizations. In addition, the Lahore Fort project is seeking

101 assistance from UNESCO Islamabad and the Office of the Regional Advisor for Culture for Asia and the Pacific, Bangkok, to expand the range and scope of international involvement with Pakistani heritage professionals.

6.3 CONSERVATION STRATEGY

The conservation strategy aims to achieve long-term sustainable preservation of all the tangible and intangible aspects that give significance to the site. In the shorter term, the focus is on emergency measures to assure that endangered heritage is not lost to future generations. The whole approach to conservation must be embedded in an understanding of international standards and best practice. Interventions must be appropriate to the situation and the decision to conserve based on well-judged priorities.

6.3.1 Overall Strategy The overall conservation strategy addresses the following issues of immediate concern at Lahore Fort (Figure 6.6).

a. The urgent need to identify, document and conserve all of the site's original/historical elements. This means all structural, decorative and design features which pre-date Independence (1947). Mughal period elements are a priority because the World Heritage inscription recognizes the monument's cultural significance as a Mughal palace complex.

b. Measures to prevent further deterioration in the condition of the various historic structures, through basic stabilization and preservation work.

c. Carrying out of all conservation work in line with Master Plan priorities, to ensure best use of any available funding. Following this policy will streamline preservation work. It will also simplify the application process with donors and help safeguard the site's value and authenticity.

d. Ensuring that conservation work follows set and approved procedures; that no work begins without full discussion and detailed planning, and that work done is fully documented and follows international best practice.

102 CONSERVATION ACTION

Detailed Graphic & Photographic Documentation (Heritage Foundation Pakistan (HFP) Format, Numbering System and Schedules)

Detailed Condition Survey History of Interventions Develop Details and Studies From Dossiers developed Basedon HFP Initial Survey In Collaboration with HFP

Establish Requirements for Action: Emergency work, Stabilization Preventive Conservation/ Maintenance Stabilization, Conservation

Prepare Drawings for Works to be Executed Based on Baseline Documentation

Action to Ensure Reversibility and Safeguarding of All Original Elements Carry out Full Graphic & Photographic Documentation During Progress

Prepare Report of Work Accomplished

Figure 6.6 Diagram Illustrating Proposed Flow of Conservation Activities

103 6.3.2 Conservation (COS) Objectives

COS OBJECTIVE 1: All works to be carried out according to Conservation Action Priority List

Past work at the site did not consider structural needs. Many structures that could have been saved with comparatively small expenditure suffered, while work was carried out on buildings that were in a relatively good condition. For this reason, the Master Plan includes a Conservation Action Priority List (Table 6.12) to direct funds toward the most vulnerable structures.

Based on room-by-room condition surveys by HFP, the list in Table 6.10 includes standing structures belonging to the Mughal, Sikh and British periods. Basements are not included in the present study because they were either inaccessible or no drawings were available. Standing structures receive highest priority, since many of them require immediate attention.

The Shah Burj's structures are not included in the list, as the present Government of Punjab Lahore Fort Project is presently doing most of the critical work - for example, repair work on the Shish Mahal ceiling. On completion of the second phase in December 2005, the Project aims to have tackled all of the major problems. This also includes cleaning, preventive maintenance and conservation. Because of the building's great height, it was not possible to do preventive conservation of its northern and western faces (comprising parts of the picture wall) in this phase. Accordingly, the Conservation Action Priority List allocates funding for future preventive maintenance of this portion.

Conditions surveys provide information used in drawing up this list. Although based on visual examination only, they cover all rooms and record the type and condition of material. These are first condition reports, assessing the comparative condition of various structures and their conservation requirements and providing the basis for targeting future work in a systematic and prioritized way.

Figure 6.7 illustrates these priorities: level one and two priority actions are for all structures requiring emergency work and or stabilization; level three actions are preventive maintenance and preventive conservation; level four will be actual conservation work.

Decisions as to what work should be carried out with available funds will be made by the Project Implementation Team, with advice from the Technical Committee and the approval of the Site Commission. The site conservation team will implement work, with advice from the Technical Committee. The aim is to end the past practice of reproductions and reconstructions. The emphasis will now be on ensuring the safety of structures, whilst retaining their authenticity and original features.

104 CONSERVATION FUNDS

PRIORITY ACTIONS

Emergency Immediate action to stop irretrievable 1 Works damage to the historic property

Stabilization To provide structural stability and further 2 Works degradation of structure

Preventive To provide protection to vulnerable 3 Conservation/ areas of historic property Maintenance

Conservation To repair and preserve the historic property 4 Works without removing original evidence.

Note: Funding should be directed according to priority actions. Any restoration work to be carried out should be done after extensive discussion and after all the historic structures of the Lahore Fort have been conserved.

Figure 6.7 Diagram illustrating conservation action priority

105 COS OBJECTIVE 2: Procedure for Undertaking Conservation Works

The Master Plan recommends the following system for conservation work at the site. The following steps aim to ensure work is done systematically, after detailed evaluation and discussion.

Step 1: apply the documentation system developed by the HFP to other parts of the site, as the basis for preparatory work before any conservation.

Step 2: aim to ensure detailed documentation is available before any conservation work starts. It will then be possible to do a detailed condition survey by creating drawings of all areas of concern, along with further studies based on the original HFP Condition Survey (a copy of which is contained in the Master Plan annexes).

Step 3: incorporate information from the History of Intervention Dossiers; developed by the Project Research Cell under the guidance of HFP, these are available for most of the quads at the site.

Step 4: thoroughly review scheduled conservation work, on the basis of various studies, to see whether there needs to be any further structural evaluation. If so, the action strategy will need amending to indicate whether this is emergency work, stabilization, preventive conservation/preventive maintenance or conservation.

Step 5: prepare detailed drawings to show the exact nature of conservation work. These must clearly show the present position of various elements (described in the baseline documentation), the proposed work and the means by to retain the original elements and ensure there is no damage to these. The site supervisor will then use these drawings to execute the work.

Step 6: ensure all work done is reversible, to safeguard all original elements. The Technical Committee must approval the removal or changing of any elements. All work requires full photographic documentation, both during and after its completion. Interventions also require full graphic recording, with section views of all areas. These 'as built' drawings will then become part of the record in the project archives, as and when this is established.

Step 7: prepare a full report on reasons for undertaking the work, the process adopted and the work done, supported by drawings and photographs. This should be archived.

106 COS OBJECTIVE 3: Full and accessible documentation of all aspects of the site

Full and systematic documentation of all aspects of a site is the basis of all conservation planning and decision-making. The style, construction, materials and condition of all its built elements form the baseline for assessing comparative significance, whether of elements or buildings and historical assemblages as a whole. Understanding the status and needs of the site, and identifying authentic elements needing to be preserved, determines the design of the overall conservation strategy in a number of ways: in setting priorities for conservation works, in the design of specific conservation works and in planning future documentation and research directions.

This documentation must also meet international standards. A successful documentation programme is already in place at the Lahore Fort, under the management of the Project Documentation Centre (PDC). It complies with international standards, in both the work it is doing and the way that it does this. The PDC have an on-going staff training programme, and uses standardized recording formats to gather data entered into to a computerized database. The HFP-designed documentation procedures used by the PDC cover all elements of the site. This involves assigning a unique number to each recorded element recorded and documenting this in detail. This information is available as baseline data, in either hard-copy folios or electronically, to support conservation work. Future custodians will therefore have access to detailed information, regardless of whether or not the present team remains in place.

The PDC have met most second phase conservation action priorities. However, given the scale and complexity of the picture wall, work will continue until the end of, and possibly beyond, 2006. Works undertaken in phase two (2005-06) comprises: q remaining detailed documentation and schedules for the Shah Burj; q detailed documentation and schedules of other structures bordering the quadrangles; q preliminary documentation of detached structures for example, gateways and other miscellaneous structures; q initiation of detailed documentation and schedules for the picture wall.

The aim is to fully document all elements of the site. For this, the existing documentation system will need expanding to include recording of all unexcavated, underground archaeological elements.

107 COS OBJECTIVE 4: A well-equipped and committed conservation laboratory facility

One of the recommendations of the UNESCO report on Cultural Tourism in Peshawar and Lahore is to include a conservation laboratory as part of a proposed Pakistan Conservation Institute.14 The facility would be housed within Lahore Fort and serve primarily to meet the conservation needs of the site. This would include:

q support to the monitoring and maintenance teams, through materials analysis, chemical treatment and analysis; q support to the conservation team, through original materials analysis and testing proposed new materials; q support to museums in the form of artefact conservation and environmental monitoring of exhibits;

To achieve these objectives, the Master Plan recommends a study to assess the present situation, implement basic upgrading and design a phased programme of future improvements. A chemist with experience in running an effective conservation facility should conduct the study. It should address the issues of:

q equipment upgrading existing equipment, prioritizing new/ additional purchases, computerization; q training in equipment use for specific conservation chemistry/ laboratory needs; q updating and expanding the library as a research resource; q designing a long-term research and expansion programme to broaden the laboratory's capacity; q relocating the lab: whether the current location is satisfactory, in terms of laboratory needs and building preservation.

COS OBJECTIVE 5: Centralized and systematic storage and inventory of all artifacts and building elements retrieved and/ or excavated from the site

Large quantities of architectural elements in various parts of the site need proper curation and storage. These include original building elements removed in past restoration projects, which are a valuable resource. The Master Plan proposes:

q a systematic search of the site for material in need of curation; q a computerized inventory system to document all material for easy access; q identification of a location for a centralized storage facility.

An appointed consultant, working with the PDC, should carry out this study.

108 COS OBJECTIVE 6: Reinstallation of original historical building elements

Past conservation work has focused on removing damaged portions of monuments and completely replacing them. In the process, much authentic, original fabric ended up in un-inventoried storage. This needs tracing, in conjunction with an initiative to create a site repository. Where possible, elements should go back to their original position. To do this, the Master Plan proposes that the PDC and a conservation architect do a study to identify these elements and to assess the viability of their re-installation.

COS OBJECTIVE 7: Development of a Conservation Resource Library

Establishing a first-class conservation resource library will support professional training and the work of the PDC and conservation staff. It should contain material on conservation theory and practice, working manuals, international guidelines and standards, best-practice examples from around the world and relevant journals. A first step would be to download from the web and print important documents freely issued by the World Heritage Centre, UNESCO, ICCROM, Getty Conservation Institute, English Heritage, US National Parks Services, Parks Canada and other organizations. UNESCO could assist in identifying and assembling resource material needed at the site.

COS OBJECTIVE 8: Training of qualified craftspeople and artisans to carry out conservation and maintenance work in traditional materials and methods

The master-apprentice training system in traditional building crafts and skills has broken down in Pakistan, leading to a serious shortage of trained artisans. Traditionally, restoration of monuments by the Department of Archaeology and the Auqaf Department provided training for artisans. They employed many artisans, who were able to practice their traditional skills. One of the by-products of the past policy of replacing damaged portions of monuments with facsimiles or replicas was to provide artisans with ample work.

Owing to a lack of money, these departments no longer employ artisans and contractors now do work once done by them. This practice has proved detrimental to the site's monuments because of a lack of control over the quality of work done – artisans being the best people to check this work. Having lost the surety of sustained employment, former artisans moved on and have not passed on their skills to the next generation. This is a lost to both the skilled building profession and conservation at the site.

109 The lack of skilled, trained artisans capable of meeting the stringent requirements of authentic conservation at the site is an obstacle. Without an adequate numbers of them, it would not be possible to carry out the work envisaged under the project. In response, craft workshops were set up under the Government of Punjab Project. Encouragingly, in the short period since January 2004 they have been able to make a breakthrough in reviving interest in historical building crafts. As the Management Guidelines for World Cultural Heritage Sites notes:

'Guidance by trade masters is essential to ensure continuity; site workshops can promote this. Conservation crafts persons should understand the history of technology of their craft and be able to analyze how historic work was set out and produced.’15

The UNESCO Report onCultural Tourism in Lahore and Peshawar underscored the urgency of reviving building crafts. The National Advisor to the Craft Workshop Project at the site subsequently developed this idea, based on the UNESCO report's findings. Given the importance of some of the building crafts originally used to embellish the Shah Burj structures, training is necessary before allowing any crafts persons to work these.

The paper also highlighted the possibility of selling replica work produced by trainees. Sale proceeds from the craft products or replicas would go into a Crafts Fund to support the workshops after the end of the present project.

The following crafts workshops are now functioning: fresco,manabbat kari (stucco tracery work) andaiyna kari (mirror work), pietra dura and tile mosaic. The results from the fresco workshop, run by master artisan Ustad Saif, are most encouraging. Programmes such as Seal of Excellence, which recognizes craftspeople, can support this effort to develop workshops producing innovative design and high quality products using traditional materials and techniques.

COS OBJECTIVE 9: A resource collection of building crafts

While artisans are training, a collection of historical samples of each craft and building technique used at the site needs to put together. Properly labelled and sourced original samples (wherever available) and replicas of the following materials and production techniques will serve as an important reference source. They include: q stone and marble – sculptural elements, incised carving, fretwork screens; q pietra dura and inlay work; q samples of fresco work; q samples of tile mosaic; q brick elements – samples from Jahangiri columns, bases and brackets composed of brick masonry as well as chajja formations;

110 q samples of flooring patterns and compositions.

Gathering these items can be part of the process to collect and recording material for the proposed repository, housing them as a sub-collection.

COS OBJECTIVE 10: Support of In-house Conservation

This objective encourages the handling of conservation work by an in-house workforce, rather than outside contractors. This is essential to meet the goal of careful conservation to maintain the authenticity of the premises. For a long time, the Department of Archaeology employed artisans who worked under departmental supervisors. This allowed for working in a systematic way with required documentation, and enabled the Department to discontinue using the Pakistan Works Department (PWD) for work at historic sites in the 1970s. The Department of Archaeology set up its own engineering wing, with a workforce and supervisors who trained when working on various sites under is care. Such a system provided better supervision of work, onsite guidance and supervision, along with a trained workforce conscious of the premises' historical value.

In the last 10 years however, the department increasingly used contractors for work it earlier carried out itself. It is in a contractor's interest to do as much new work as possible. Therefore, much of their work comprises producing new elements rather than conserving the original. This has inflicted great damage on the site, with the removal of remnants and their replacement with replicas. Even in the recent work on the basement chambers, modern commercial paints were used in the frescos rather ones made from original ingredients.

Unless it is work of a specialized nature, such as the new steel structure above the Shish Mahal ceiling, it is important that the department staff carry out all conservation work. For this purpose trained artisans and workers should be employed on a regular basis, so that that they can develop the necessary 'duty of care' outlook when working on historic premises. This proven method ensures that only those who are trained and skilled in various conservation-related trades carry out work. It also allows continued evaluation as work progresses and helps in the protection and reuse of historic remnants. Accordingly, the department needs to strengthen its in-house capacity for conservation work if it is to maintain the authenticity of site.

6.4 MONITORING AND MAINTENANCE SYSTEMS

6.4.1 Overall Strategy

A specialist report, Management and Monitoring Systems for Conservation and Preservation of Lahore Fort, contains a detailed review of the existing monitoring and maintenance situation at the site, and the factors contributing to its

111 deteriorating condition (Annexure 2). At present, there is no programme for regularly and systematically monitoring and maintaining the condition of buildings and spaces at the site; to ensure that they do not deteriorate to the point that their integrity and significance is compromised. There is also no system to monitor the implementation of conservation work and ensure that this complies with specifications and set standards of intervention. Procedures exist only for monitoring work carried out in line with approved Master Plans and development schemes.

In response, the Master Plan proposes putting in place a monitoring and preventive maintenance programme. By systematically reviewing building conditions, it would identify emergency and long-term maintenance and conservation needs. Recommendations are also made for the supervision and monitoring of conservation works, to ensure that they are done to the highest standards.

6.4.2 Monitoring and maintenance (MM) objectives

MM OBJECTIVE 1: Systematic monitoring of the fabric of historical buildings and the condition of Lahore Fort

The Master Plan recommends that a core monitoring team, comprising a conservation architect, conservation engineer and chemist, work under the supervision of the Project Implementation Team.

They will carry out systematic weekly and monthly inspections, assessing all buildings and parts of the site. In this way, all buildings receive equal attention and problems do go unnoticed.

Routine monitoring will focus on all major elements of each building or structure, including: q roofs; q masonry, walls and foundations; q cracks; q storm water drainage; q moisture/humidity; q floors and staircases; q internal finishes; q drainage systems; q ruins. Figure 6.8 illustrates some of the general elements needing regular inspection in all buildings.

112 REGULAR MONITORING INSPECTIONS

Roofs Roof Joints: Roof Deflection Cracks Roof Finish Drains, Gutters

Masonry Walls All cracks Lateral Displacement Bulges Foundations Settlements Moisture movement

Cracks Age of Cracks New Cracks Glass telltales Micrometer

Storm Water Revival of old Drainage Rain water Inspection during and after rains

Moisture, Humidity Height of Dampness In Winter and Summer

Floors, Staircases Fungus in Timber Stairs and Floors Excessive Wear and Tear

Internal Finishes Detached Plaster Frescoes Dust and Dirt Water Seepage Vandalism

Drain System Test with bucket of water or Emission Test or Pneumatic or Electro Magnetic

Ruins Plant Growth Loose coat of Plaster

Figure 6.8 Diagram showing monitoring needs

By using monitoring checklists developed for each building and structure, it is possible to systematically assess the condition of all these elements. The Master Plan recommends appointing an architectural consultant as soon as possible to design these. Each one will include building-specific critical structural and decorative elements that require special attention in maintaining its soundness and authenticity. The checklist will provide indicators to measure change or deterioration in an element's condition. Changes in these will then alert the Project Implementation Team to take the necessary action.

By investing in monitoring equipment – thermographs, humidigraphs and vibration meters – telltale symptoms will be detected. These will augment the systematic monitoring process.

Data gathered will form a baseline against which to monitor and measure change and deterioration in building condition, and inform decisions about maintenance work

113 needed. Specific recommendations would go to the Site Management Group. If approved, work done by the maintenance team would need certifying on completion by the monitoring team. This establishes a system of cross-checking of work and confirmation of standards. Figure 6.9 illustrates the relationship between the two teams and the site's administration.

SITE COMMISSION

Punjab Archaeology Department

Technical Committee Site Management Group

Monitoring Team:* Maintenance Team:* Conservation Architect, Conservation Architect, Conservation Engineer, Conservation Engineer, Archaeological Chemist Archaeological Conservator

* Specialist input as required

Figure 6.9 Monitoring and maintenance teams' structure

MM OBJECTIVE 2: A programme of regular site maintenance

TheManagement Guidelines for World Cultural Heritage Sites states that:

'The maintenance programme is aimed at keeping the cultural resources in a manner that will prevent the loss of any part of them. It concerns all practical and technical measures that should be taken to maintain the site in proper order. It is a continuous process, not a product.'16

The objective of a maintenance programme is to preserve inherent values of an historical property; safeguarding the authenticity and integrity of structures and site whilst also preventing deterioration of the historical fabric. As the Management Guidelines for World Cultural Heritage Sites also points out: 'Prevention is the highest form of conservation. If causes of decay can be removed, or at least reduced, something worthwhile has been achieved.'17

The proposed maintenance programme links in with routine monitoring of the site. Decorative and structural problems identified on monitoring checklists go to the

114 maintenance team, comprising a conservation architect, conservation engineer, an archaeological conservator and their respective assistants. This team will work alongside the monitoring team, under the supervision of the Site Management Group and Technical Committee (Figure 6.9).

Both teams will discuss detailed specifications and procedures for doing the work, with advice from the Technical Committee and site conservation architect. If specialist input is required, the Committee can call in experts on an 'as needed' basis.

When agreed maintenance work is completed, a full report will go to the Site Management Group. The monitoring team will review this and the work itself, certifying it as complete and up to standard. If there are any issues or disagreements, the Technical Committee will assist in resolving them.

Figure 6.10 shows the steps required to set up and run the system for monitoring site condition, and planning and implementing maintenance action.

INITIAL TASKS: Initial Inspection Report to identify critical monitoring issues: Consulting Conservation Architect

Monitoring Checklists: Consulting Conservation Architect + Technical Committee

ONGOING Regular Monitoring to assess issues PROGRAMME: on Checklists and identify new ones; data recorded on building specific Monitoring Team forms: Monitoring Team confirms maintenance work Identification of Maintenance Priorities: Monitoring Team + Maintenance Team Maintenance Team + Conservation reports of work done Team + Technical Committee

Implementation of Maintenance Work: Maintenance Team

Figure 6.10. Setting up and implementation of the monitoring and maintenance programme

115 MM OBJECTIVE 3: A system of monitoring conservation work carried out by the department or under their supervision

Monitoring and inspecting conservation work will be a standard procedure for the site's conservation team. Monitoring and maintenance teams will jointly supervise and continuously check all ongoing conservation work. This includes studies of specific conservation situations to design the best means of working, preparing surfaces and materials before work starts and writing detailed specifications. It is also essential that skilled conservators or contractors with sound knowledge of conservation doing the work complete full reports on its completion.

MM OBJECTIVE 4: Protection of archaeological resources

Archaeological resources at Lahore Fort consist of areas of ruins and exposed building foundations which, 'because of their lost physical integrity, are subject to particular problems of decay and therefore merit special treatment and care. '18 The site's archaeological remains are subject to damage by pedestrian traffic and exposure to the elements. There are also open areas, presently covered with recent soil deposits or under hard surfaces or sealed areas adjacent to standing historical structures, which could be exposed during conservation work. In all cases, important information lies sealed below the surface of the site. This could be lost unless a comprehensive approach for safeguardingin situ remains and presenting these to the public is in place. It needs to deal with the following issues.

a. Preservation of exposed building remains and foundations

q All areas of archaeological remains should be superficially cleared, mapped and their condition assessed. The maintenance team should clear these with the supervision of an archaeologist. The PDC, with the supervision of an archaeologist, should carry out mapping and recording. The site's conservation team and an archaeologist will need to assess their condition and advise on any action. q After mapping and recording, fragile remains should be recovered with a layer of soil or gravel. q Exposed remains may need combining with other material to preserve its historical integrity. Any material added must be compatible and reversible, and the work done under the supervision of the site conservation architect and an archaeologist. q Routing visitor traffic away from ground level remains and closing off areas with fragile ruins, as unrestricted walking and climbing on these causes damage.

b. Monitoring of site work involving excavation

All work involving excavation in archaeologically sensitive areas of the site must be prohibited unless necessary. Figure 6.11 shows these areas. This includes

116 maintenance excavations, conservation of historical buildings, garden digging, access to drains and cables or other work.

Any work penetrating more than 25 cm below the surface in these areas must be subject to an archaeological monitoring programme. Archaeological monitoring, sometimes referred to as a watching brief, will not stop work or substantially delay it; the aim is to ensure the retrieval and recording of any archaeological finds and information revealed.

The Master Plan recommends designing an Archaeological Monitoring Programme, including a manual or SOP, all necessary pro formas, registers and a programme for processing material and data recovered during monitoring. An archaeologist trained in the monitoring system must supervise the monitoring, or watching brief. Staff training will therefore also need to be part of the Programme.

The programme to protect archaeological remains below ground should follow the three-fold approach presented below in Figure 6.12. During emergency management of exposed areas, research and planning should also begin on devising a long-term archaeological research plan. At the same time, monitoring procedures need designing and putting in place at the site.

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117 Identification of areas of exposed archaeological Research remains and of underground potential

Emergency Programme: Archaeological Archaeological Monitoring of Works Investigations: in areas of potential:

l Clearance of areas of l Consultant study to archaeological l Consultant study plan archaeological remains to design investigation l Mapping of remains monitoring programme l Assessment of procedures l Geophysical Testing preservation needs l Implementation l Excavations with a l Implementation of of “watching “History in Action” consolidation or brief” when programme protection measures required l Post-excavation processing and analysis Add to Monitoring l Report and Programme publication

Figure 6.12 Long term protection of below ground archaeological resources

MM OBJECTIVE 5: Initiation of an expanded cleaning maintenance programme for the site

Cleaning of marble surfaces has begun, under the supervision of the Assistant Chemist and his staff. This follows experiments, in 2003, to establish a correct cleaning procedure. After looking at various ways, and because Sepiolite is not available in Pakistan, it was decided to use mild detergent and clean water. This has proved effective – cleaning the marble surface without making too white, and enabling it to blend in with other adjacent material. The most difficult areas to clean have been the intricate fretwork screens, consisting of miniscule hexagonal patterns.

Given the huge scale of the operation to clean the Shah Burj and the rest of the citadel, the project created a cleaning brigade of low-income women from the staff colony. This has proved extremely successful, due to the women's determined effort. Equipped with brushes, masks and caps, they are systematically removing decades of grime from the site's marble and brick. This initiative should cover all areas of the site, and continue on a long-term basis to maintain standards of cleanliness.

118 Specialist advice is required on the best and safest methods to clean the monument's fragile elements like frescos, delicate plaster mouldings and tile mosaic work. General cleaning or non-specialist laboratory staff cannot do this, as it is highly skilled work.

The Master Plan requests UNESCO to assist in bringing in specialists and organizations with experience in conserving Mughal art to work at the site.

MM OBJECTIVE 6: Review of the planting programme

The conservation team needs to work closely with senior garden staff in identifying areas where plant watering is affecting buildings. Where this is a problem, the solution is to remove and relocate plants further away from the affected building. The Dalans (cells), on the perimeter of the Maidan-e-Diwan-Aam are a case in point. Relocating plants caused no loss to the integrity of the gardens, as the planting did not follow the original Mughal layout.

Damage of this kind to historical fabric is reported to or picked up by the monitoring team. They then consult the conservation team. The maintenance team will then do any remedial work.

6.5 RESEARCH FRAMEWORK

The purpose of a research framework is to promote and support wide-ranging research and make best use of all opportunities to extend knowledge and understanding. A research framework document will therefore need to signpost a wide range of issues and topics for anyone interested in researching the site.

6.5.1 Overall Strategy

The site's research framework must: q assess the state of existing knowledge and clearly identify gaps which need filling; q highlight those baseline research topics essential to developing further enquiry; q disseminate the framework's principles among academic and research institutions to stimulate scholarly and specialist research.

119 6.5.2 Research Framework (REF) Objectives

REF OBJECTIVE 1: Mechanisms to support a wide ranging research programme at Lahore Fort

A research cell exists as part of the revitalized PCI. It will carry out the following work.

a) Design a research framework with the following objectives: q understanding historical processes at the site, shown in the chronological development of the building plan, design, decoration and use; q understanding the use and meaning of space, water and vegetation, in creating the garden landscape in the Muslim world; q understanding the manipulation of the landscape in the site's creation and evolution; q understanding the changing physical and metaphorical relationship of the Lahore Fort with the walled city; q understanding the site in the wider context of Mughal fort design, construction and use; q providing and using information as an aid to the site's effective interpretation, authentic conservation and management.

Table 6.3 presents broad areas of research focus and examples of specific research topics.

b) The Research Cell will also: q manage the acquisition of archival material; q manage any allowances paid from the Research and Publication Fund to students doing research; q arrange library exchanges, internationally and nationally, for relevant research material for projects at the site; q publicize the Research Cell's agenda throughout the academic community in Pakistan and abroad to attract students, scholars and researchers.

TheManagement Guidelines for World Cultural Heritage Sites also recommends that a Research Coordination Committee be set up. This would advise on and organize long- term programmes, involving a succession of researchers, or short-term programmes for individuals. It would also set goals, establish work plans and schedules and review progress. At present, research at Lahore Fort is almost non-existent and without funding. However, at this point a committee structure would not be appropriate for the Research Cell, as it would be potentially restrictive. The firm recommendation, also given in the Management Guidelines for World Cultural Heritage Sites that 'close liaison be maintained with universities and other facilities interested in the cultural resources' receives full support.19

120 Site Studies: Landscape Studies: — the functions of Structures and areas; — Study of Ravi River relationship to Chronological development of the plan the site over time and function of parts of the Qila — Flora / botanical studies — Building sequences and architectural — Stratigraphic studies of the site phases modification — Stylistic analysis of structural and — Chemical soil mapping decorative elements — geophysical examination of the site — Study of Mughal hydraulic system through archaeological methods Regional Studies: — Historical studies of persons and events — Understanding of the site within the — Study of miniature paintings and other context of Mughal South and central artistic sources Asia — Compilation of references to Lahore — Compilation of a Research Fort in Persian manuscripts and other Bibliography of Mughal studies early works — Compilation of Royal Asiatic Society Technical Studies: references and other learned journals — Materials analysis — The changing relationship of Lahore — Study of specific conservation Fort to the Walled City methods — Study of exhibits in the site museums — Scientific dating of structural and — Cataloguing and study of structural excavated materials fragments in storage around the site — Soil, hydrology, micro-climates etc.

Table 6.3 Research Framework: types of studies that would contribute to the research base

REF OBJECTIVE 2: A Lahore Fort publication programme

Now well established, the Research Cell needs to begin publishing; initially, about work done. This can then subsequently expand to include publication of past and on-going research, adding to the body of knowledge about the site.

Developing a publication programme is a priority. This would need to detail the kinds of publications the Cell aims to produce (pamphlets, books, leaflets, guides). It would also need to include a publishing schedule and cost breakdowns, define contributor responsibilities and serve as a plan for the short and medium-term. A properly developed programme will be very important in attracting contributions from national and overseas sources to the Research and Publication Fund.

121 REF OBJECTIVE 3: Programme of archaeological research and investigations

A much-needed programme of archaeological investigation will provide evidence clarifying the plan and date of buildings, building phases and the relationships between various parts of the site. Techniques used in garden archaeology can also help to trace the changing plan of the , planting schemes, built features and hydraulic systems. This would create an integrated picture of change through the centuries.

The specific objectives of the proposed archaeological programme are: q to clarify the plan, identity and date of built remains, where knowledge is presently only partial, fragmentary or anecdotal (i.e. known only through literary or artistic references); q to resolve questions concerning building sequence and relationships between architectural phases of known structures; q to define the pattern and layout of the original gardens in the historic quadrangles and the chambers around the Maidan; q to identify the species of plants used in Mughal period garden schemes, with a view to restoring original schemes; q to understand define Mughal period hydraulics and water features with a view to restoring original designs to working order; q to develop local awareness of the historical depth and richness of site and to increase community interest in its conservation.

The programme will involve: q initial research to identify areas of the site with high archaeological potential or at particular risk; q creating a GIS database to manage information generated by archaeological research; q a non-intrusive geophysical survey to identify sub-surface features and areas of high potential, particularly evidence of the hydraulics system; q soil sampling and chemical mapping; q excavating selected areas of high archaeological interest; q post-excavation processing and analysis of data and finds.

On-going archaeological excavation also provides an educational opportunity for student and community involvement 'in the field'. If properly managed, it also provides an opportunity for inspiring a public interest in 'history in action'.

Figure 6.11 shows recommended areas for archaeological investigation. A consultant archaeologist, in conjunction with archaeologists of the department, now needs to prepare a detailed proposal for archaeological research and investigation at the site. Detailing aims and areas for investigation, field and post excavation methodology,

122 staffing, schedule and costs, this will be an important part of the overall strategy for preserving the underground archaeological resources discussed in MM Objective 4b.

Identification of areas of exposed archaeological Research remains and of underground potential

Emergency Programme: Archaeological Archaeological Monitoring of Works Investigations: in areas of potential:

l Clearance of areas of l Consultant study to archaeological l Consultant study plan archaeological remains to design investigation l Mapping of remains monitoring programme l Assessment of procedures l Geophysical Testing preservation needs l Implementation l Excavations with a l Implementation of of “watching “History in Action” consolidation or brief” when programme protection measures required l Post-excavation processing and analysis Add to Monitoring l Report and Programme publication

Figure 6.12 Long term protection of below ground archaeological resources

REF OBJECTIVE 4: Upgrading of the library

There are plans to relocate the library to Hazuri Bagh. Regardless of whether this happens, there needs to be fundamental improvements to bring it up to standard. The library particularly needs to safeguard the collection and to make it easier for scholars to conduct research. In the first instance, it should become a reference library with all books remaining in the Library. All rare material needs to be under lock and key, with copies for reference.

One of the main aims of the Research Framework is to encourage and support scholars to do research and use the library. For this to happen, library facilities need upgrading in the following ways. q provision of computers for use by scholars; q provision of Internet connectivity for scholarly web browsing and searching;

123 q provision of a photocopying machine and flatbed scanner; q better shelving for books; q tables and chairs for researchers and staff; q a stationery allocation; q better lighting and electrical outlets.

A Library Committee would be responsible for advancing these improvements and seeking urgently needed funding. It would comprise: q the Senior Librarian; q a representative of the Northern Circle, Federal Department of Archaeology; q a representative of the Research Cell; q a representative from the Friends of Lahore Fort.

REF OBJECTIVE 5: Programme for collection, storage and inventory of archival material

Archival material at the site consists of maps, drawings and photographs. Many maps and drawings date from late nineteenth and early twentieth centuries, and are the only record of its kind in Pakistan. Consisting of both glass slides and negatives, this photographic material provides invaluable evidence about the past condition of the site.

Given the fragility and importance of this material, it is important to fully catalogue and then store it in an acid-free environment. Glass slides, many badly damaged, need printing, with photographic copies arranged for easy access by researchers. Overall, the record is an extremely important source for research.

Developing a proper environment for storing and curating archival material is a priority. If this is to happen, there is an urgent need to: q appoint an archivist specializing in paper and photographic storage; q create a separate archival section in the PDC or Library; q properly catalogue all archival material; q store it in special acid-free enclosures in acid-free boxes; q create photograph prints of all glass slides and fragile or important negatives; q digitize and scan all material for ease of use.

6.6 VISITATION POLICY

Part of the Master Plan study involved developing a detailed, long-term proposal for presenting and using Lahore Fort whilst maintaining, protecting and enhancing its historical and cultural authenticity. The full report is in Annex 3. The overall aim of the

124 visitation plan is 'to enhance visitor understanding and appreciation of the site and its heritage values, while at the same time safeguarding it from inappropriate exploitation.'20

As is widely accepted, cultural tourism can provide benefits; to a country's economy and, in the case of Pakistan, by helping promote a 'soft' cultural image. If properly briefed, visitor to the Lahore Fort can act as individual 'cultural ambassadors'. However, converting the ordinary visitor into a cultural emissary is going to require a great deal of effortnot least, in provide them with authentic and interesting information, attractively presented in a variety of media. A key aim of the Visitation Policy is to bring Lahore Fort to life and by explaining its past, give it new meaning in the present.

6.6.1 Overall Strategy

The Policy's overall strategy includes: q making Lahore Fort accessible and enjoyable for a broad spectrum of people; q ensuring that events and activities are of a high quality; q preventing or minimizing negative impacts on the site; q developing a public commitment to the site; q maximizing income-generation by use of the site as a venue for authorized public activities and events.

6.6.2 Visitation Policy (VIP) Objectives

VIP OBJECTIVE 1: An Emergency Protection Plan to control visitor access and close fragile areas

Proposals for the use of different parts of the site use the following designations. q High Cultural Resource Areas (HCRA), comprising the main Mughal quadrangles, structures and garden areas. In these areas, there is a focus on display and educational facilities. There are rest areas, but no provision of food or service facilities (maximum restrictions on permitted usage). q Middle Cultural Resource Areas (MCRA), primarily comprising British period interventions outside the HCRA, the lawns around the Akbari gate and northeastern area of the site. Visitor facilities, offices, the proposed craft centre and picnic areas are in this zone (defined but more relaxed restriction). q Recreational Zones (RZ), consisting of the Maidan, the lawn between the Northern Fortification Walls and the British period steps. The Plan proposes development of these zones for visitor facilities, recreation and performances (widest usage within defined limits).

125 These designated areas contain some structures and areas strong enough to withstand frequent visitation; others are too fragile for public access. A detailed review has been made of fragility levels for each structure within these zones. This also factored in special features, general conditions and potential interest for the general visitor. Based on the review, an index of building robustness divides buildings and areas into categories and specifies visitor levels. They are:

q very robust resources, which can be open to all visitors; q less robust resources that can be open, but with controlled access. q fragile resources that can tolerate only limited or restricted access. q very fragile resources, only accessible to researchers and special interest groups.

This index is in now in use. Recommendations for acceptable types and levels of use for individual buildings, structures and open spaces are in Annexure 3.

The next step is to confirm which very fragile areas of the site visitor misuse and the pressure of numbers are damaging. The PDC could do this, basing their survey on findings in Condition Survey Catalogue and Table 9 in Annexure 3 (Fragile structures and elements). It will then be possible to design and implement measures to immediately prevent access to these areas, using direct and indirect methods for controlling visitor movement.

Direct means include: q immediate closure of areas identified as being at extreme risk, ensuring that public access is impossible; q a system of soft and hard barriers to divert visitors away from sensitive areas and off delicate paving, making them viewable from a distance only; q redirecting visitor traffic into other areas by use of signs and paths to guide visitors to other less-frequented areas, such as the picture wall, which can be viewed safely from a distance.

Closure of the Naulakha Pavilion and the Shish Mahal has set the precedent for this type of restricted access.

Indirect means include: q increasing the numbers of guards and redeploying them to the areas identified as most at risk from visitor misuse; q boosting the number of guards, by implementing a student volunteer programme as a priority;

126 q arranging special activities during public holidays to encourage to crowds to disperse to other less frequented areas of the site — activities of this type could include staging theatrical events on the British-era steps, and opening the ramparts as a viewing platform.

The 'carrying capacity' concept addresses this question of how many people can visit a site at any given time without the risk of degrading it and the visitors' experience of it. Clearly, the overall numbers of visitors to Lahore Fort are often unacceptably high and visitor numbers are causing damage to particularly vulnerable areas. However, the idea of limiting the numbers of visitors to the site is contrary to its standing as a national monument and a World Heritage site. The logistics of limiting access would also be difficult.

The standard approach to these issues is to apply limits of acceptable change. This is based on the principle that rather than trying to limit numbers of visitors, heritage managers must decide how much impact and change is acceptable in a site's various zones and find ways of making sure these limits are not exceeded. The process includes an inventory of existing conditions to provide baseline data for identifying indicators to measure the impacts of tourism and the nature and extent of changes.

The Master Plan recommends that a consultant conduct a carrying capacity study of the site, in terms of limits of acceptable change principles. Its findings can then help determine visitor route planning, zone use, decisions to close fragile areas and deployment of guards.

In the long term, the main entry into the site should be from the east, through the Akbari gate. The main exit will be through the Alamgiri gate and Postern gate, leading to the Hazuri Bagh area and beyond. Routes defined within the citadel open up as much of the site as possible to visitors, whilst considering overall robustness of buildings and spaces and visitor safety issues. Fig. 6.13 presents the schematic plan for visitation to all parts of the site and proposed route alternatives.

127 Fig. 6.13 Map Showing Visitors' Facilities and Routes

128 VIP OBJECTIVE 2: An integrated interpretative policy based on sound research

The long-term Visitation Plan proposes a system of visitor facilities housed in adapted historical buildings. These would include a visitor centre near the eastern entrance to the site and two small sub-centres; one in the Postern gate barracks, the other near the British- era steps. The ground floor of Kharrak Singh Haveli would become an interpretive gallery, the former British garages an information centre in and the to-be-conserved imperial kitchens a craft centre (see Figure 6.13). The plan proposes creating a centre for childrens' activities in the Barood Khana. The proposed facilities need augmenting through a comprehensive policy for site interpretation, design of site furniture, signage, interpretive and promotional material and a system of tour guides.

The Master Plan recommends that a Site Interpretation Study develop this policy of integrated interpretation for presenting the site to visitors. The Project Documentation Centre, in conjunction with the proposed Research Cell and the Site Commission, can generate the information needed to interpret the site.

Interpretation of the Lahore Fort World Heritage Site for the public must: a. be based on factual and reliable information; b. generate 'themes' or stories explaining the significance of the site to the community, particularly students and young people; c. be transformed into a wide range of media, including: signage, web sites, booklets, brochures, audio-visual and guide packs; d. be consistent and follow well-thought-out themes or topics providing an interesting and multi-faceted picture of the site; e. be planned, designed and located in line with international standards for site interpretation.

The Study needs to provide: q an overall, detailed policy for enabling visitors to interpret Lahore Fort, employing a wide range of media and approaches; q details of the 'themes' that will tell rich and varied stories about the site, its history and significance and its meaning to Lahore, Pakistan and the world community; q plans for implementing the policy, including: — range and types of signage; — location of signage; — a brief for a design competition; — content and text for a range of printed material and CDs; — setting up the interpretive gallery.

129 Developing designs for signage, printed material and other media could happen in one of two ways: through a consultancy, or by through a competition among tertiary art colleges and other institutions. The outcome would be designs for a basic colour scheme, motifs and logos to apply to all forms of interpretive material generated by the Centre.

In the short term, stopgap measures can improve display at the site. These could include: temporary general information and map boards; pamphlets explaining the historical background and significance of the site; display boards about the crafts workshops, the cleaning brigade and the conservation work being carried out at the Shish Mahal.

VIP OBJECTIVE 3: Upgrading of the Museums

The museum at Lahore Fort is a wasted resource. A minimal investment in time, effort and money could upgrade it to a standard where it provides an informative and enjoyable visitor experience. A museum upgrade package would comprise:

q carrying out a research project on artefacts and exhibits, and the historical contexts and periods they represent; q reviewing and updating acquisitions and inventory procedures; q preparing a basic brochure providing an introduction to the museum - its scope and highlight exhibits; q looking at alternative display cases; q having the museum galleries completely and thoroughly cleaned - and instituting a regular cleaning programme thereafter; q painting the display space to brighten it up; this must be done on the advice of conservation staff to ensure sympathetic treatment of historic interiors; q where display panels exist, put up text and illustrations to explain the content of the galleries to visitors and to give meaning to their visit; where there are no panels put new ones up; q seeking expert advice on whether special facilities are needed for the conservation and safe display of fragile paper exhibits.

The Master Plan recommends that a consultant co-ordinate this work, overseeing its implementation by Lahore Fort staff formed into a Museums Action Group. This would comprise members of the Research Cell, PDC, maintenance and cleaning staff and Friends of Lahore Fort. They should also think about relocating the museum to another area at the site, and identify a building that could support specialist exhibits.

130 VIP OBJECTIVE 4: To draw the community of Lahore into all aspects of Lahore Fort's present and future safeguarding

Until recently, the local community in Lahore has had no role in caring and planning for the site. As described in Section 3.5.7, this has changed for the better because of a number of Karavan-style initiatives designed to actively involve youth and women. At present, the PDC is acting as a proxy Karavan-style office. Because of the success of recent heritage awareness events, staged in conjunction with Karavan Pakistan, and a vocal and visible expression of interest from the local community, a dedicated officer is now running a Community and Youth Outreach Cell at the site.

The Karavan approach, with its dedicated voluntary component, can stimulate youth and the public to becoming involved in activities that will benefit the site. Initiatives such as heritage cleaning, awareness raising and fostering a greater understanding of the site's history need support on a recurring basis. Regular events held in designated areas of the site help in bringing it to life for a large number of people. The Maidan-e-Diwan-e-Aam is the most suitable venue for holding public functionsfor example, its highly effectively use for large-scale public events in the Karavan 'HeritageFest' in January 2004. The Karavan office must aim to: q ensure regular and meaningful dialogue with the local community and relevant government departments; q to understand how the local community perceives and values the site; q respond to their willingness to contribute to the future of the site; q understand community expectations and how they can be met; q ensure the community understands the site's status and importance.

The following tools and models will usefully help achieve these aims. q UNESCO LEAP Local Effort and Preservation( LEAP ) is an initiative that helps foster local community stewardship over the vast and varied heritage resources in the Asia and Pacific region. The programme aims to encourage local community action for heritage conservation, within existing legal frameworks and under the supervision of conservation professionals. Project activities assist people living within or near heritage sites to take a leading role in site management and preventive conservation, and site interpretation for visitors. This provides local communities with the opportunity to benefit both economically and socially from conservation of their community's heritage.

131 q Student Virsa Volunteer Programme The enthusiasm of youth and students needs harnessing through the creation of a Virsa Volunteer Programme for young volunteers. Volunteers can immediately begin to supplement the number of guards in site areas at particular risk from visitor misuse. They can also train as guides, once a brief training module exists to provide the volunteers with authentic and relevant information. The Community Outreach Unit will need to put together the module, arrange for their training and providing overall supervision.

q Schools Programme The Community and Youth Outreach Cell needs to develop a Schools Programme to strengthen existing links with schools previously involved in programmes at the site and to create new ones who have not yet participated. There are a number of ways to do this, including: i. designing and implementing a youth and student 'Virsa Volunteers' programme; ii. staging an event of some kind every month, involving youth and women; iii. extending the Karavan World Heritage Mural exercise; iv. counting school and student attendance; v. planning ways to spread authentic information about the Fort and other World Heritage sites, targeted at children, young people and women; vi. promoting the UNESCOHeritage in Young Hands programme.

VIP OBJECTIVE 5: Restoration of the historical relationship between Lahore Fort and the Walled City

During the British period, the Fort was cut off from the walled city with the closure of Akbari gateway. This severed a centuries old link with the local community (see Figure 6.14)a link that a proposed study needs to find ways to restore. Working within the city's planning framework, it will need to identify ways to reopen the gateway and restore what would be a colourful tourist trail through history to the Delhi Gate. This heritage trail would pass through the historic centre of Lahore, past shops, bazaars and houses and architectural gems like the Wazir Khan and Maryam Zamani Mosques. Such a project would require an integrated programme of restoration, environmental improvement and presentation design.

A walled city linking study would provide information about existing tourist resources, develop strategies for revitalization the historic environment and crafts activities and integrating nearby resources into a comprehensive visitor package. To do this the study

132 Fig. 6.14 Map showing the Shahi Guzargah (royal route) to link the site with the walled city

133 will need to identify all stakeholders with an interest in the planned route, including residents, shop owners, city government departments and agencies.

VIP OBJECTIVE 6: Relocation of visitor services and amenities

The present canteen needs relocating from the Moti Masjid quadrangle to the former royal kitchens, after their planned conservation. The Visitation Management Plan also recommends relocating food stalls to the British steps, and that the consumption of all food is restricted to the Maidan area.

The Project Implementation Team should review recommendations in the Visitor Management Plan, and liase with the Site Commission and site custodians on identifying appropriate locations for basic visitor facilities. In the long-term, facilities, including those for catering, need relocating outside of or on the periphery of the site.

VIP OBJECTIVE 7: Events management

Monuments and sites benefit in many ways from use; they take on meaning for visitors, providing a stimulating and historically evocative experience. This, in turn, provides a significant justification for the expense and time involved in their conservation. The challenge is to strike a balance between preserving site components' significance and presenting these in meaningful, modern context. The key requirement, in every instance, is to identify compatible uses that require minimal alteration to the site's fabric and its setting.

In this respect, use of a site as an event venue requires very careful handling. For example, the live theatre staged in 2004 in Jahangir's Quadrangle undoubtedly entertained many people. However, the accompanying use of fireworks and horses, which were allowed to gallop through the site, posed an unacceptable threat to its fabric. Alternatively, the Karavan HeritageFest used the Maidan-e-Diwan-e-Aam to stage vignettes from Mughal history; and did so without threatening the structures in any way, in spite of the large numbers that attended the event. Theatrical events using animals need confining to the Maidan area, and use of fireworks limited to hand-held and self-contained devices that have no direct contact with historical resources and fabric.

It is extremely important to clearly spell out these and other safeguards - for example, those clearly identifying the areas for various kinds of activities and any limitations that apply. The Project Implementation Team and Technical Committee need to put together a set ofHistorical Site Use Guidelines and issue these to prospective site users. These guidelines will also need the endorsement of UNESCO, the Executive Board and the Site

134 Commission. They also need to be strictly enforced.

As a policy, the site's management should not allow events that would result in its closure to visitors. A World Heritage Site must be open to all and not restricted to private use by any special sections of society. As a publicly owned and funded site, it is unacceptable to spend public money on entertaining the social elite - especially when it so urgently required for conservation work.

VIP OBJECTIVE 8: Adaptive re-use of historical buildings for visitor use

The objectives of re-using historical buildings for visitors should be: q to ensure the long-term care and preservation of historic places; q to minimize negative effects of any change of use; q to best convey a building's historical meaning.

As a basis for decision-making about proposed reuse of site elements, the Master Plan divides potential uses into the following categories.

1. Historical spaces and building for display only.

2. Fragile or valuable areas, with no public access and reuse allowed.

3. Historic spaces with buildings used as backdrops for events: care necessary in relation to installation of lighting and equipment, contact with original fabric, vibration and pedestrian impacts. Use must follow the principle of conserving existing spaces and access patterns without modification.

4. Historic buildings with no modifications for events. Buildings considered robust enough, and of only moderate significance, can be used as 'shells' for events and activities that do not require any modifications or additions to the building fabric and are in line with Historical Site Use Guidelines on lighting, equipment, contact with original fabric, vibration and pedestrian impacts.

5. Historic buildings modified and adapted for use as visitor facilities. Identified in theVisitor Management Plan for reuse as visitor facilities and display areas, these include the royal basements, Karrakh Singh Haveli and Bharood Khana. They will require considerable refurbishment and modification to meet user requirements and building code standards. This approach only applies to buildings whose cultural/historical significance is low and condition is very poor, and where major adaptation and modification would make it a meaningful component of the site. Again, any works will clearly specifying in a Building Modification Brief

135 prepared by the Conservation team and endorsed by the Technical Committee. If changes in use are of a kind that could adversely affect a building, the Building Modification Brief must fully justify these - especially if there are alternatives that would have less impact. Above all, proposed modifications must not prevent the possibility of interpreting a building's significance.

6.7 ENVIRONMENTAL AND PHYSICAL INFRASTRUCTURE PLAN

An existing Environmental and Physical Infrastructure Study identifies conditions affecting the site and its immediate environs. It proposes a framework for improving and protecting these. The full text of Study is in Annex 4; the following section presents a summary of major recommendations.

6.7.1 Overall strategy

The overall aim is for an integrated and phased approach to the site's critical environmental and infrastructure issues. The Master Plan attempts to make realistic proposals for change, whilst acknowledging the complexity of many of the environmental problems, and political and administrative realities facing the site's custodians.

The core issues, which need addressing first, are those in and around the site that directly affect its buildings, spaces and overall integrity. These are highlighted here. The Master Plan proposes developing a policy to guide short and longer- term action to address these critical environmental problems.

Policy objectives are divided into those affecting the site's environs, under heading 6.7.2 (Environmental Plan Objectives), and those affecting the site itself, under 6.7.3 (Physical Infrastructure Objectives).

6.7.2 Environmental Plan (EPI) Objectives: the site's environment

EPI OBJECTIVE 1: Revitalization of the environs of Lahore Fort and reinstatement of a viable Buffer Zone

Annexure 4 identifies and Figure 6.15 and 16 highlight many of the issues in the site's immediate environs. Solutions to these can only exist through joint effort by the relevant concerned agencies and local government departments. Table 6.3 itemizes the issues, recommends action and identifies the responsible agents. All proposed efforts require the involvement of the site's custodians. This includes the Site Commission, which is responsible for maintaining links and coordinating action with town, city and provincial levels of government.

136 Issue: Responsible Agent: Garbage Collection Town & City Governments Shifting of Rim Market Punjab Government Re-routing of Traffic City Government Shifting of Bus Terminus Punjab Government Pedestrianized Areas Town & City Governments Plantation and improvement of parks in the periphery Town & City Governments

Table 6.4. Issues related to the buffer zone and responsible agents

Fig. 6.15 Map of Lahore Fort and its immediate environs, and existing traffic management

137 EPI OBJECTIVE 2 : Entrance location and corresponding parking areas

In the short-term, the Alamgiri gateway will continue in use as the main entrance to the site. However, if the proposal to open up the Akbari gateway is successful this will become the main entrance. The present parking lot, located in Hazuri Bagh, is adjacent to the present main entrance. Entry to this is through a narrow congested lane. The recommendation to make Hazuri Bagh a vehicle-free area would, if adopted, mean shifting the parking somewhere else. In the longer-term, when the entrance moves to Akbari gateway and encroachments like the rim market are removed, the space cleared could then become a green belt and parking area on the site's eastern periphery. Related facilities could be located here, including a visitor's reception centre and other services such as food outletsall in a landscaped setting.

EPI OBJECTIVE 3: A phased approach to the issues of traffic and pedestrianization in the site environs

The Master Plan recommends a phased approach to the issues of traffic and pedestrianization, beginning with remedial action designed to be easily and quickly implemented. Recommendations involving studies and coordination between numbers of departments are of a longer-term nature. In brief, the phases comprise:

Phase 1: q pedestrianization of the Hazuri Bagh, and relocation of parking to the Iqbal Park lot across the Grand Trunk (GT) Road and interim areas to the south and east shown in Figure 6.16; q investigating the use of plants, water features and other protective elements to offset the adverse effects of road traffic; q enforcing restrictions on stopping and parking to reduce congestion and idling caused by heavily polluting vehicles, particularly along the northern periphery where a large number of buses are parked and washed throughout the day.

Phase 2: q initiating a Traffic Planning and Management Study to investigate ways of reducing heavy traffic on the GT Road, through diversions; q diverting traffic using Fort Road along the south of the site, to the parallel road on the other side of Ali Park as a temporary measure while the overall traffic situation is assessed and a permanent rerouting solution is worked out.

Phase 3: q closing the GT road to all polluting traffic and rerouting this away from the site; q opening alternative car parking areas to the east of the site to coincide with the re- opening of the Akbari gate, in the area now occupied by the rim market (Fig. 6.16).

138 HOSPITAL ROAD

FORT ROAD PROPOSED CAR PARKING FOR 150 CARS

PROPOSED AKN FOR PARKING VISTORS

Fig. 6.16 Traffic rerouting and designated pedestrian areas

139 EPI OBJECTIVE 4: Implementation of Cultural Heritage Impact Assessments

Cultural Heritage Impact Assessment (CHIA) is a legally endorsed system for assessing the direct and indirect effects of proposed development and construction on cultural resources. It identifies these effects and, if negative, specifies enforceable measures to mitigate them. CHIA is a very useful tool for evaluating the acceptability of various proposed works and development, both inside and near the site.

In the environs of the World Heritage Site At present, developments in the site's immediate environs occur without any consideration of the effects that these may have its preservation and integrity. Any proposed development within a designated distance should require a CHIA. The Site Commission is responsible for identifying these.

Within the World Heritage Site All proposed actions in or uses of the site that, if taken, are likely to have a significant impact on its outstanding universal values should be subject to the impact assessment process. The Site Commission is responsible for identifying situations that need assessing.

The Master Plan recommends a study to define how to best implement CHIAs in both these situations. It will need to take a different approach when assessing works outside the site; it will involve liaison with town and city authorities, government departments and, in some cases, private developers and property owners. Cultural Heritage Impact Assessments need integrating into local planning processes. Cultural Heritage Impact Assessments of proposed works within the site have a narrower scope and conducting them will be a more straightforward process.

The study should set out the basic procedures for carrying out CHIAs, defining qualifications for those will implement them.

EPI OBJECTIVE 5: Partnerships with the Lahore City Government and the tourism industry to achieve preservation goals

Effective site safeguarding also depends on successfully tackling external environmental issues. Its future is integrally linked to issues of population growth, housing, traffic control and routing in adjacent city areas. Many of the problems the site faces result from a lack of commitment and coordination between various levels of government and different departments. Lahore Fort is presently a lacuna in urban land use and zoning plans, with no recognition of the need to use planning tools to protect it and to maximize its potential to generate cultural tourism related income. Making effective and sustainable preservation and management of the site's environs a reality will require the commitment of all levels of government, relevant agencies and the public.

140 A Lahore Fort Site Commission is will be responsible for bringing these stakeholders together. Its membership will need to include representatives from the city of Lahore, the walled city and Federal and Provincial government. Together, with the site custodians and Technical Committee, they will need to monitor plans and developments which affect site. They also need to aggressively pursue the Master Plan's environmental goals and respond promptly to new developments and conditions.

Proposed upgrading and controlling of the site's surroundings will create a zone with high land values and development potential. Developing this area for cultural tourism associated with the site will inevitably result in opportunities for income generation within the local community, particularly in the walled city. For this to happen clear guidelines are necessary; specifying acceptable types of tourism and culturally related development within the area around the site, to ensure its protection and maintenance of a suitable buffer zone and setting.

A first step in this process is an Integrated Urban Conservation Planning and Land Use Study; a comprehensive strategic planning study of land use in the walled city and other areas adjacent to site, to define conservation zones. The Executive Board is responsible for instructing relevant government departments and policy-makers of these aims.

6.7.3 Physical Infrastructure (EPI) Objectives

EPI OBJECTIVE 6: Surface water drainage on the site and the damage to historic buildings

Present storm water drainage is damaging historic fabric in a number of places at the site. The main causes are the intentional channelling of water through historical buildings, leaking pipes and drains and consequent rising damp.

A study needs to identify remedies and design a more effective system of storm water collection and removal from the site. It needs to specify ways of protecting highly vulnerable fabric, like the picture wall, from water seepage. It also needs to review the provision and storage of water at the site - a challenge, given the absence of drawings detailing the supply and distribution system and the need to have to re-create these. The study's review needs to recommend ways to monitoring leaks, assess the efficiency of the tube wells and overhead tank and upgrade the overall system. It will also have to consider the future of the current staff colony, and make recommendations for its redesign or relocation.

In the interim, stopgap measures need putting in place to prevent further deterioration and mitigate damage to historic fabric. Annexure 4 illustrates these measures.

141 EPI OBJECTIVE 7: Management of garbage and solid waste

The site needs efficient systems for removing solid waste and disposing of this outside the buffer zone. Annexure 4,Environmental and Physical Infra-structure Study, proposes some measures. The first stage target is to have upgraded bins located at the most important and heavily used points, and ensure waste is regularly removal from the site.

A planned Karavan 'No Litter' initiative will help to control and prevent this problem at heritage sites. It aims to instil a sense of responsibility in the public toward the site, particularly the young. It will involve registering and motivating school groups to collect litter, with raffle draw and recognition certificates for those involved. Community outreach initiatives like this heighten community awareness and help reduce the burden on site staff.

EPI OBJECTIVE 8: Improvement of toilet facilities

The Master Plan study found numerous defective toilets at the site. Many of these are damaging building fabric, principally through leaking pipes. A priority recommendation is to remove most of these, and concentrate new facilities at strategic locations in line with Visitor Management Plan. When the need arises, serviced mobile toilets can also supplement these.

As a first step, all pipe leaks need repairing and, where necessary, replacing. In the long- term, all toilet and water sources in historic buildings need closing off.

EPI OBJECTIVE 9: Upgrading of the electrical provisions at the site

The Master Plan recommends upgrading electrical facilities and distribution in various parts of the site. As a priority first step, the Site Commission must have all electrical supply equipment (transformers, poles and brackets) attached to historic fabric removed. This work will need supervising by the site conservation architect and the Technical Committee. The site maintenance team will need to carry out any subsequent reconstruction work on the walls.

EPI OBJECTIVE 10: Enhancement of the site for evening use

The Master Plan recommends extending the site's opening hours into the evening, for at least several days a week. This will mean reviewing existing site illumination. Section 10 of Annexure 4 presents one option for lighting the site, to permit visitor circulation and for its beautification. It incorporates decorative bollards, spotlights, lamps recessed in the ground and fibre optic lighting systems.

The Technical Committee and conservation team will need to carefully examine all proposals; no option is acceptable if it involves directly attaching equipment to the

142 historic fabric. Similarly, it is important to ensure these do not subject fragile pigments to excessive light; that installations do not disturb un-monitored excavations or use unsympathetic and inappropriate design elements.

EPI OBJECTIVE 11: Improved standards of security at the site

To improve the overall situation, the Master Plan recommends an overhaul of the existing security system. It would entail increasing the numbers of on-site guards, and providing them with communication and other equipment. Preparing a core training module is a first stage priority, so that security staff knows which areas of the site are strictly off limits to visitors and what forms of visitor behaviour are unacceptable.

The Master Plan recommends outsourcing security for the site's museum to a specialist provider. They will need to put forward detailed measures for upgrading this. The system should incorporate electronic surveillance, using CCTV. It may also require installation of mechanical or infrared alarm systems.

Virsa volunteers can also assist in safeguarding the site. After training, they can perform the same role as regular guards. They are likely to have a greater rapport with young visitors, allowing them share information about the site's heritage in a way that regular guards cannot.

6.8 Lahore Fort OBJECTIVES - ACTION PLAN 2006-12

The following tables, 6.56.10, identify priority levels, target dates for completion and agents responsible for each objective. They also include assessments of the types of resources needed for implementation.

6.8.1 Key to the Action Plan Table: Priority Level High Key priorities that underpin the overall Plan, and need immediate action. Medium Critical recommendations needing initiating or implementing to prevent further erosion of the site's value. Lower Proposals which, when implemented, will substantially reinforce safeguards. Desirable Long-term plans for safeguarding the site. Target Date Ongoing Started or starting, and will continue. Immediate Work to start as soon as possible. Short-term Within one year. Medium-term Within three years. Long-term Within six years.

143 Others

Ä

ÄÄÄ ÄÄ

ÄÄ

Ä

ÄÄÄ ÄÄÄ

Key Agents

Year Govt Govt Govt

5,000

10,000 35,000 35,000 80,000

80,000 C

200,000 84,000

TSC T 200,000 SC T 40,000 SC T 44,000 SC

T FOSQ

T FOSQ

T

Term

Ä Ä

Priority Period Resources Needed

Ä Ä

Ä

Ä

Ä Ä

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

SITE MANAGEMENT STRATEGY (SMS)

Ä Ä Ä

Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE

Table 6.5 LAHORE FORT OBJECTIVES - ACTION PLAN 2006-2011

Appointment

All Concerned

Team Formation

Cost Site Management

Cost Diversified Funding Base

Contributions in Kind

Acknowledgement System

Master Plan Dissemination

1 Objective

SMS 1 Site Management SMS 1.1 Site Commission I/c all Stakeholders SMS 1.2 Management SMS 1.3 Technical Committee

SMS 2 Diversified Funding Base SMS 2.1 Environmental Fund SMS 2.2 Shahi Qila Heritage Fund SMS 2.3 Crafts Fund SMS 2.4 Rsearch and Publication Fund

SMS 3 Contributions in Kind SMS 3.1 Contributions in Kind

SMS 4 Acknowledgement System SMS 4.1 Acknowledgement System

SMS 5 Master Plan Dissemination SMS 5.1 Distribution to

SMS 6 Pakistan Conservation Institute SMS 6.1 Board of Governors Installed SMS 6.2 Setting up PCI

144 PCI

Ä Ä Ä Ä

Ä

50,000 BOG,

20,000 C 40,000 C

40,000 C

20,000 C

25,000 C

S 10,000 C

S 30,000 C

Ä Ä

Ä

Ä Ä

Ä Ä

Ä Ä

raining

ools

raining

Training Courses

ools

Cost Pakistan Conservation Institute

Cost Core Competency T

Cost SOP

Cost Management T

International Collaboration

SMS 6.3 Design & Implement

SMS 7 Core Competency T SMS 7.1 Consultancy SMS 7.2 Implementation

SMS 8 SOP SMS 8.1 Design SMS 8.2 Implementation

SMS 9 Management T SMS 9.1 LFA SMS 9.2 Heritage Audit S 30,000 C SMS 9.3 Risk Management SMS 9.4 GIS

SMS 10 International Collaboration SMS10.1 International Collaboration

145 CT

CT

CT

CT

MT

SC,MT,

SC,MT,

Ä

Ä

Key Agents

115,000

60,003 SC,MT

15,000 C

60,000

2,922,423

S 30,000 DC, CT

S 100,000

S 60,000 MT, CT

* * * 1,031,732

* * * 1,350,598

Term Year Govt Govt Govt

Ä

Priority Period Resources Needed

Ä

Ä

Ä Ä

CONSERVATION STRATEGY (COS)

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

Ä

Ä

Ä

Ä

Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE Others

orks

orks

Table 6.6 SHAHI QILA OBJECTIVES - ACTION PLAN 2006-2011

orks S, T DC,RC,

Action

Action

orks * * 258,272 SC,MT,

orks * * 221,818 SC,MT,

Conservation Priority

Cost Conservation Priority

Procedure for Conservation W

Detailed Documentation

Conservation Laboratory

Cost Repository Implementation

2 Objective

COS 1 COS 1.1 Emergency W

COS 1.2 Stabilization W

COS 1.3 Preventive Conservation/Maintenance

COS 1.4 Conservation

COS 1.5 Studies

COS 2 Procedure for Conservation W COS 2.1 Procedure for Conservation W

COS 3 Detailed Documentation COS 3.1 Documentation

COS 4 Upgrading Conservation Laboratory COS 4.1 Consultancy COS 4.2 Upgrading Programme

COS 5 Repository Implementation COS 5.1 Repository Implementation

146 Ä

Ä

50,000

100,000

S 50,000 MT, CT

S 100,000 10,000

S 10,000 RC

S, T MT, CT

Ä

Ä

Ä

Ä

Ä

Cost Reinstallation of Original Elem.

Conservation Library

Crafts Training

Cost of Crafts Collection

Limits on use of Contractors

COS 6 Reinstallation of Original Elements COS 6.1 Reinstallation of Original Elements

COS 7 Conservation Library COS 7.1 Conservation Library

COS 8 Crafts Training COS 8.1 Crafts Training S 40,000 MT

COS 9 Crafts Collection COS 9.1 Crafts Collection

COS 10 Limits on use of Contractors COS10.1 Limits on use of Contractors

147 Ä Ä

Key Agents

15,000 C

S MT,MnT

S MT,MnT

S 30,000 MT,MnT

S 6,000 MT S 10,000 MT

S 10,000 MT

Term Year Govt Govt Govt

Ä

Ä

Priority Period Resources Needed

Ä

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

MONITORING AND MAINTENANCE (MM)

Ä

Ä

Ä

Ä Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE Others

Table 6.7 Lahore Fort OBJECTIVES - ACTION PLAN 2006-2011

ork

ork

ork S MT,MnT

Arch. Resources

Arch. Resources

Monitoring System Implementation

Maintenance System Implementation

Monitoring Conservation W

Protection of

Cost of Cleaning Programme

Review of Plantation

3 Objective

MM 1 Monitoring System Implementation MMI 1.1 Monitoring System Implementation

MMI 2 Maintenance System Implementation MMI 2.1 Maintenance System Implementation

MMI 3 Monitoring Conservation W MMI 3.1 Monitoring Conservation W

MMI 4 Protection of MMI 4.1 Consultancy MMI 4.2 Implementation

MMI 5 Cleaning Programme MMI 5.1 Women's Brigade MMI 5.2 Experts Cleaning

MMI 6 Review of Plantation MMI 6.1 Review of Plantation

148 Ä

Ä

Key Agents

SRC

SRC S 25,000 RC

S 20,000 C S 20,000

S 26,000

S 50,000 DC,RC

S, T 10,000

Term Year Govt Govt Govt

Ä

Ä

RESEARCH FRAMEWORK (REF)

Priority Period Resources Needed

Ä

Ä

Ä Ä

Ä

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE Others

Table 6.8 Lahore Fort OBJECTIVES - ACTION PLAN 2006-2011

Acquisitions

Cost of Research Cell

Cost of Publication Programme

Cost of Publication Programme

Cost of Library

Cost of Archival Storage & Inventory

4 Objective

REF 1 Research Cell REF 1.1 Setting up REF 1.2 Framework Finalized and Promulgated

REF 2 Publication Programme REF 2.1 Programme Plan REF 2.2 First Publications

REF 3 Archaeological Investigations REF 3.1 Detailed Proposal REF 3.2 Impementation and Reports

REF 4 Library Acquisitions REF 4.1 Library Acquisitions

REF 5 Archival Storage and Inventory REF 5.1 Archival storage and inventory

149 Ä

Ä

Key Agents

ÄÄ ÄÄ

176,000

100,000

Term Year Govt Govt Govt

Low S 100,000 C, MT

Low S 100,000 MT

High 6,000 High S 20,000 MT

High 10,000 C High S, T 20,000 MT

High S 20,000 COC,VV

Medium T 6,000 Medium S, T 40,000 MT

Medium S 10,000 C, MT

Medium 30,000 SC Medium 100,000

Ä

Ä

VISITATION POLICY (VIP)

Priority Period Resources Needed

Ä Ä

Ä

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

Ä Ä

Ä Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE Others

Table 6.9 SHAHI QILA OBJECTIVES - ACTION PLAN 2006-2011

Youth Outreach

alled City Integration

Action Group Formation

Cost of Emergency Protection Plan

Cost of Site Interpretation

Cost of Museum Upgrading

Cost of Museum Upgrading

Cost of W

5 Objective

VIP 1 Emergency Protection Plan VIP 1.1 Carrying Capacity Consultancy VIP 1.2 Closure of fragile areas

VIP 2 Site Interpretation VIP 2.1 Consultancy VIP 2.2 Interim Signage VIP 2.3 Design Competition VIP 2.4 Implementation VIP 2.5 Interpretative Gallery

VIP 3 Museums Upgrading VIP 3.1 Museums VIP 3.2 Implementation

VIP 4 Community Involvement VIP 4.1 Community &

VIP 5 Walled City Integration VIP 5.1 Consultancy VIP 5.2 Implementation VIP 6 Visitor Amenities on Site

150 Ä

Ä

Low 75,000 C

High S SC, MT

High S 10,000 MT, C

Medium S 100,000 SC, MT Medium 20,000 C

Medium S 150,000 MT, CT

Medium S, T MT

Medium S 10,000 MT,CT,C

, Crafts etc.

isitor Amenities

Cost of V

Events Management

Adaptive Reuse Guidelines

VIP 6.1 Restricted to Maidan VIP 6.2 Relocated to Royal Kitchens VIP 6.3 Consultancy VIP 6.4 Cafeteria, Souvenir VIP 6.5 Conservation

VIP 7 Events Management VIP 7.2 Policy Formulation VIP 7.3 Policy Implementation

VIP 8 Adaptive Reuse Guidelines VIP 8.1 Adaptive Reuse

151 ?

?

?

Ä

Ä Ä

Key Agents

?

?

30,000 C

TSC

SSC

S S

S, T SC

S, T S, T S, T S, T 30,000 C

S, T MT

Term Year Govt Govt Govt

ÄÄ

Ä

Ä

Priority Period Resources Needed

Ä

Ä Ä

Ä

ium able Term ium Term going ices (US$) (US$) Town jab ral SCO

Ä

Ä Ä Ä Ä

High Med Low Desir Short Med Long On- Serv Funds Funds City/ Pun Fede UNE Others

ENVIRONMENT AND INFRASTRUCTURE (EPI)

Table 6.10 SHAHI QILA OBJECTIVES - ACTION PLAN 2006-2011

own Govt.

own Govt.

Town Govt.

Entrance and Car Parking

Traffic and Pedestrianization

Site Enviorns Upgrading

Cultural Heritage Impact Assessment

Partnership with City & T

6 Objective

EPI 1 Entrance Location and Car Parking EPI 1.1 Entrance and Car Parking

EPI 2 Traffic and Pedestrianization EPI 2.1 Phase 1 EPI 2.2 Phase 2 EPI 2.3 Phase 3 EPI 2.4 Consultancy

EPI 3 Site Enviorns Upgrading EPI 3.1 Plantation EPI 3.2 Removal of Encroachments EPI 3.3 Regular Cleaning EPI 3.4 Removal of Electric Lines

EPI 4 CHIA EPI 4.1 Consultancy EPI 4.2 Legal Enforcement Structure

EPI 5 Partnership with City & T EPI 5.1 Partnership with City and

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EPI 6 Drainage EPI 6.1 Interim Plan Development and

EPI 6.2 Consultancy EPI 6.3 Implementation

EPI 7 Garbage and Solid W EPI 7.1 Public Education Initiative EPI 7.2 implementation Proposals

EPI 8 Toilet Facilities EPI 8.1 Removal of out of service toilets EPI 8.2 Installation of portable toilets

EPI 9 Electrical Services EPI 9.1 Removal of of

EPI 9.2 General upgrading EPI 10 Night Illumination

EPI 10.1 Consultancy for Illumination Plan EPI 10.2 Installation of illumination equipment EPI 10.3 Open for evening EPI 11 Security

EPI 11.1 Training modules for guards and

EPI 11.2 Specialist proposal EPI 11.3 Implementation

153 6.9 CONSERVATION PRIORITY LIST

Table 6.11 sets out priorities for implementing various types of preservation work at site. Table 6.12 sets out Year-wise targets for conservation action over the six years of the Master Plan. The Conservation Action Priority List was prepared after careful evaluation of buildings and structures, including Condition Surveys. It identifies structures at risk unless immediate action is taken, and others which are stable and requiring only long- term conservation.

The list divides work into three levels of priority:

q Priority 1 actions includes all emergency and stabilization work; q Priority 2 actions includes preventative conservation action; q Priority 3 actions includes ongoing conservation needs.

With a comprehensive list detailing the condition of various structures, it is possible to carry out conservation in line with the priority list. This will ensure endangered structures receive emergency attention and stabilization as soon as possible.

6.10 RECOMMENDATIONS FOR FURTHER SPECIALIST STUDIES

The following list of recommended specialist studies and projects will support the Master Plan's effective implementation. Some are studies. Site management / staff or consultants can do these as part of an ongoing preservation programme. q Risk Assessment and Management Plan: to identify potential risks to the World Heritage Site and design a programme of detailed preventative action [with consultant]; q GIS design and implementation: to set up a purpose-designed GIS Database for the site and train the management team in its use and applications [with consultant]; q Core Competency Training Plan: to work with site management and staff in defining all tasks and designing basic training needs [with consultant]; q Conservation laboratory study: to assess the present situation, implement basic upgrading and design a phased programme of future improvements [with consultant]; q Repository Plan: to systematically search the site for material needing curation; design a computerized inventory system to document all material for easy access; and to identify a location for a centralized storage facility;

154 q Monitoring checklists: to design building-specific checklists for monitoring and assessing condition, maintenance and conservation needs [with consultant]; q Archaeological monitoring programme: to design a method of monitoring all excavation works on site; to ensure retrieval of archaeological finds and data while protecting monuments and deposits [with consultant]; q Proposal for archaeological research and investigations: to retrieve information about Mughal use and design of open spaces and the historical hydraulic system; to design a system for archaeological monitoring of works on site [with consultant]; q Design of a research framework: to identify gaps in knowledge and areas for priority research; to promote interest in the academic community; q Publication programme: to set an agenda for future publication and production of all forms of printed and digital material; q Drainage study: detailed survey and study of the site's drainage and associated conservation issues [with consultant]; q Site interpretation study: to develop an integrated interpretation policy for presenting Lahore Fort to visitors, producing an overall policy, themes for presentation and implementation plans [with Consultant]; q Museums upgrade initiative: to research and then carry out an inventory, redesign of display presentation and improvements to physical conditions and layout; q Carrying capacity study: to assess how many people can enter areas of the site and how this affects it, in order to set management guidelines for visitation [with consultant]; q Historic site use guidelines preparation: to create guidelines and rules for the use of all parts of site for public events, to safeguard it; q Crafts design, sales and marketing study: to defining a strategy for the design, quality control, sales and marketing of products from the Workshops [with consultant]; q Walled city link study: to design a linking route, recommend a method for implementing this and negotiate plans with all stakeholders [with consultant].

155 156 157 Lahore Fort Safeguarding Year-Wise Conservation Targets - 2005

Table 6.12(a) Year-wise Targets for 2006 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 1.2 Diwan-e-Aam 1,818 1.3 Daulat Khana-e-Khass-o-Aan 7,273 5,818 1.5 Makatib Khana 5,455 7,273 19,055 2.2 Moti Masjid 7.273 32,727 7.273 12,727 2.3 Mai Jindan Haveli 5,455 3.2 Janoobi Iwans 18,182 3.4 Mashriqui Suite 2,364 8,182 3.5 Mashriqui Burj 10.909 8.182 3.6 Bangla Pavilion East 2,727 3.7 Jahangir's Khwabgah 6,545 3.8 Maghribi (West) Burj 10,909 8,182 3.9 Maghribi (West) Suite 909 3.11 Zenana Hammam 12,727 10,000 4.2 Diwan-e-Khass 9,091 23,636 23,636 10,000 4.4 Hammam-e-Badhshahi 5,455 36,364 5.2 Imperial Zenana Mosque 22,727 29,091 5,455 5.3 Kala Burj 5,455 29,091 5.4 Lal Burj 5,455 20,909 25,455 7.1 Shah Burj Forecourt 36,364 7.2 Athdara 7,273 2,909 7.3 Shah Burj Quadrangle 17,241 UNESCO 7.4 Shish Mahal 12,727 UNESCO 7.7 West Sehdara Pavilion S 1,364 UNESCO 7.8 Naulakha Pavilion 5,000 2,273 UNESCO 7.9 West Sehdara Pavilion N 1,364 UNESCO 9.1 West Pictured Wall 5,000 9.2 North Pictured Wall 9,091 40,919 10.4 Imperial Kitchens 18,182 27,273 UNESCO 10.6 Akbari Darwaza 14,545 22,727 14,545 UNESCO 10.8 Alamgiri Darwaza 18,182 TOTAL 57,737 180,919 187926.182 246,033 14,545 GRAND TOTAL 687,161

158 Lahore Fort Safeguarding Year-Wise Conservation Targets - 2006

Table 6.12(b) Year-wise Targets for 2007 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 1.2 Diwan-e-Aam 36,909 1.3 Daulat Khana-e-Khass-o-Aan 14,545 56,364 1.4 Karrak Singh Haveli 47,273 1.5 Makatib Khana 28,582 2.2 Moti Masjid 24,545 3.2 Janoobi Iwans 20,000 21,818 3.3 Mashriqui Iwans 16,364 3.5 Mashriqui Burj 12,727 3.6 Bangla Pavilion East 4,545 3.7 Jahangir's Khwabgah 11,818 3.8 Maghribi (West) Burj 12,727 3.9 Maghribi (West) Suite 8,182 3.10 Maqhribi (West) Iwans 13,636 3.11 Zenana Hammam 13,636 4.2 Diwan-e-Khass 38,182 4.3 Khwabgah-e-Shah Jahani 29,909 4.4 Hammam-e-Badhshahi 17,273 26,354 4.5 Arz Gah 2,364 5.2 Imperial Zenana Mosque 14,545 5.3 Kala Burj 43,636 5.4 Lal Burj 38,182 6.3 South Dalans 4,091 6.4 North Dalans 9,091 6.5 Gor Darwaza 2,273 7,1 Shah Burj Forecourt 11,818 7.2 Athdara 11,818 7.4 Shish Mahal 20,000 7.5 East Sehdara 5,000 7.6 South Dalans 7,000 7.8 Naulakha Pavilion 10,000 7.9 West Sehdara Pavilion N 5,000 8.1 Shah Burj Darwaza 5,000 9,000 8.2 Hathi Paon & Ghulam Gardish 10,909 30,909 9.1 West Pictured Wall 9.2 North Pictured Wall 40,919 54,545 10.4 Imperial Kitchens 27,273 10.6 Akbari Darwaza 10.8 Alamgiri Darwaza 36,364 11.1 East Fortififcation Wall 36,364 11.2 South Fortification Wall 9,000 TOTAL 40919 349,546 510,025 GRAND TOTAL 900,490

159 Lahore Fort Safeguarding Year-Wise Conservation Targets - 2007

Table 6.12(c) Year-wise Targets for 2008 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 1.4 Karrak Singh Haveli 49,564 2.3 Mai Jindan Haveli 30,909 2.4 Western Dalans 14,545 3.1 Jahangir's Quadrangle 27,273 3.3 Mashriqui Iwans 33,636 3.4 Mashirqui Suite 10,909 3.7 Jahangir's Khwabgah 17,273 3.10 Maqhribi (West) Iwans 28,182 4.1 Shah Jahan Quad 29,091 4.3 Khwabgah-e-Shah Jahani 31,818 4.5 Arz Gah 9,455 5.4 Khilwat Khana 2,000 5,545 5.6 Basement Kala Burj 5,000 10,000 5.7 Basement Lal Burj 5,000 8.1 Shah Burj Darwaza 10,091 9.1 West Pictured Wall 14,091 9.2 North Pictured Wall 54,545 122,752 10.1 British Garages 9,091 10.2 British Barood Khana 4,582 11.2 South Fortification Wall 9,182 11.3 West Fortificatiaon Wall 13,000 11.4 North Fortification Wall 13,000

TOTAL 10,000 10000 230,764 309,770 GRAND TOTAL 560,534

160 Lahore Fort Safeguarding Year-Wise Conservation Targets - 2008

Table 6.12(d) Year-wise Targets for 2009 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 1.1 Maidan-e-Diwan-e-Aam 36,364 2.3 Mai Jindan Haveli 40,000 3.1 Jahangir's Quadrangle 30,000 3.12 Basements 10,000 4.1 Shah Jahan's Quadrangle 30,000 4.5 Arz Gah 14,545 5.1 Paein Bagh Quadrangle 27,273 5.6 Basement Kala Burj 7,000 5.7 Basement Lal Burj 10,000 9.1 West Pictured Wall 14,091 9.2 North Pictured Wall 54,545 122,752 10.2 British Bridge 1,091 10.5 British Shed 16,364 10.7 British Steps 25,455 10.9 Postern Gate 1,818 Curator Residence 6,364 11.3 West Fortificatiaon Wall 14,273 11.4 North Fortification Wall 14,273

TOTAL 10,000 10,000 196,183 260,025 GRAND TOTAL 476,208

161 Lahore Fort Safeguarding Year-Wise Conservation Targets - 2009

Table 6.12(e) Year-wise Targets for 2010 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 1.1 Maidan-e-Diwan-e-Aam 36,000 3.12 Basements 25,000 5.7 Basement Lal Burj 7,000 9.1 West Pictured Wall 41,818 9.2 North Pictured Wall 122,752 10.5 British Shed 16,364 10.7 British Steps 25,455 10.10 Curator Residence 6,364 11.3 West Fortificatiaon Wall 14,273 11.4 North Fortification Wall 14,273

TOTAL 25,000 54,001 187,298 GRAND TOTAL 241,299

Lahore Fort Safeguarding Year-Wise Conservation Targets - 2010

Table 6.12(f) Year-wise Targets for 2011 No. Name Studies Emerg- Stabili- Prev. Conser- Funding ency Zation Cons vation Source 3.12 Basements 20,000 9.1 West Pictured Wall 41,818 9.2 North Pictured Wall 122,752

TOTAL 20,000 164,570 GRAND TOTAL 184,570

162 Other studies, which need carrying out by external agencies, include: q Traffic planning and management study: assessment and redesign of traffic management in and around the site to lessen its effects on Lahore Fort; q Integrated urban conservation planning and land use study: a comprehensive strategic planning study of land use in the walled city and other areas adjacent to Lahore Fort, to stimulate cultural tourism and define conservation zones; q Cultural Heritage Impact Assessment study: To define how CHIAs can be for work outside the site, involving liaison with city authorities and integrating these into local planning processes; and for proposed works within the site.

6.11 Sharing Progress with the Public

As a World Heritage site, the Lahore Fort is the property of the community of Lahore, Pakistan and the world and every visitor therefore has a stake in its preservation. When carrying out projects at the site, the public need informing about the nature of the work and the reasons for it. It is possible to achieve this by a variety of means:

q producing a regular newsletter for distribution to visitors, updating them on what is happening at the site; q using site notice boards to describe what work is taking place, upcoming events and what is on view; q using information panels wherever work is taking place, giving background to this, plans and up-to-date progress reports. q conservation, craft activities or archaeology 'in action' provides the public with a fascinating insight into the preservation process and enriches the visitor's experience.

163 References

1. Kelly, Best Practice in Cultural Heritage Management. Best Practice in Cultural Heritage Management (Historic Heritage on Parks & Protected Areas): A Report to the ANZECC Working Group on National Park and Protected Area Management, 2001. 2. Fielden, Bernard and Jukka, Jokilehto, Management Guidelines for World Cultural Heritage Sites, ICCROM, Rome, 1993. 3. Clark, Kate, 'Preserving What Matters: Value-led Planning for Cultural Heritage Sites.' Conservation, The CGI Newsletter, Vol.16, No. 3, p. 5-12. 4. Parks Canada, Standards and Guidelines for the Conservation of Historic Places in Canada, 1994. www.pc.gc.ca/docs/pc/guide/nldclpc-sgchpc 5.Management Guidelines for World Cultural Heritage Sites , op.cit. 6. UNESCO Office of the Regional Advisor for Culture for Asia and the Pacific, Cultural Heritage Management and Tourism: Models for Cooperation Among Stakeholders, www.unescobkk.org/culture 7.Management Guidelines for World Cultural Heritage Sites , op.cit., p. 30. 8. PowerPoint™: computer application software for presentations, produced by Microsoft Corporation. 9.Cultural Tourism in Lahore and Peshawar, UNESCO, Islamabad, 2003, p. 150. 10.Management Guidelines for World Cultural Heritage Sites , op.cit., p. 30. 11. Stovel, H,Risk Preparedness: A Management Manual for World Cultural Heritage , ICCROM, Rome, 1998. 12. Box, Paul, GIS and Cultural Resource Management: A Manual for Heritage Managers, UNESCO, Bangkok, 2001. 13.Management Guidelines for World Cultural Heritage Sites , op.cit., p. 30. 14.Cultural Tourism in Lahore and Peshawar, op.cit., p. 82. 15.Management Guidelines for World Cultural Heritage Sites , op.cit., p 50. 16.Management Guidelines for World Cultural Heritage Sites , op.cit., p 41. 17. ibid., p. 41. 18. ibid., p. 41. 19. ibid., p. 28. 20. Pedersen, Arthur, Managing Tourism at World Heritage Sites: A Practical Manual for World Heritage Site Managers, ICOMOS International Specialized Committee on Cultural Tourism, UNESCO, Paris, 2002, p. 60.

164 PART 7

Mechanisms for Implementation

165 166 PART 7

MECHANISMS FOR IMPLEMENTATION OF THE MASTER PLAN

7.1 IMPLEMENTING THE MASTER PLAN

7.1.1 Goals

This section of the Master Plan pulls together all recommendations for action from the various plans and discusses ways to effectively implement these. Carrying out a plan will often mean reallocating existing time, money and human resources. Therefore, the first step is to develop a system for actually carrying out intended work. Just because a plan exists and staffing is available, it does not mean that the two are effectively aligned to do the job. Staff may need assigning new duties, or a new committee or sub-body creating. It is very important to have a clear understanding of how the work is going to be done, and who will do what, before any is attempted.

The goal of implementation is to advance all long-term objectives set out for the site. In summary, these aim to:

q achieve the highest standard of conservation and presentation to preserve the site's significance; q work towards inclusive and effective management; q seek adequate funding for long-term financial stability; q ensure the site is systematically and pro-actively monitored and maintained; q implement a comprehensive access policy for a wide range of people; q enhance the quality of the visitor experience through sustainable visitation; q continue to build strong relations with the local community.

Given staffing and funding realities, it is clear that moving towards this goal can best be achieved by focusing on those key strategic shorter-term objectives highlighted in Part 6 of the Action Plan.

7.1.2 Term of the Master Plan

ICOMOS recommends that the minimum period for a World Heritage Site management plan is five years, followed by a review. This Master Plan is designed to achieve its basic vision over six years. The first three-year period, or Phase I, will deal with stabilization, emergency conservation work and stopping all forms of deterioration. Phase II focuses on implementing programmes which,

167 while less urgent, are still central to the site's effective management and conservation. Long-term action, extending beyond the six-year term, comprises Phase III.

Schematic timetables for the Action Plan's various components are set out in the Lahore Fort Objectives - Action Plan, Table 6.4 - 6.9.

Conservation and maintenance of the Lahore Fort will be a continuous process, subject to funding, and cannot strictly follow an imposed schedule. The Master Plan sets out priorities for conservation work and highlights buildings and elements needing emergency conservation. As funding becomes available, decisions on using it most effectively need to follow defined priorities.

7.1.3 Agents responsible for implementation

Section 1.5 lists key agencies and partners involved in implementing the Master Plan. The Lahore World Heritage Executive Board and the Site Commission will have overall responsibility for ensuring recommended actions are implemented in line with Plan priorities and guidelines. The Technical Committee will advise them and work with the Project Implementation Team, who will function as the executive arm. The World Heritage Centre will also play an important advisory and training role, providing links with international expertise and potential funding sources.

Given the shared responsibility for the site, it is important that all parties formally agree to and support Master Plan requirements - particularly the Federal and Punjab Governments, as respective owner and custodian of the site. The goal is to make the document legally binding on the custodians, those responsible for administration and management, the Executive Board, the Site Commission and the Project Implementation Team.

Figure 7.1 shows the parties responsible for implementing the Action Plan.

168 UNESCO World Heritage Centre

Federal Department Federal Punjab Department of Archaeology Government of Archaeology Departments PCI Board of Governor Site Commission Punjab Government Pakistan Conservation Departments Technical Committee Institute

Lahore Town Site Management Research and and City Group Publication Cell Government Departments Monitoring Documentation Team Centre

Maintenance Community Team Outreach Cell

Conservation Laboratory Team

Pool of private, corporate, public and community workers to assist in all aspects of managing and preserving Lahore Fort:

Library Heritage Friends of Committee NGOs Lahore Fort

Museums Action Academic Community Action Group Institutions Group

Tourism Virsa Private/ Corporate Industry Volunteers Sector

Figure 7.1 Partners responsible for implementing Action Plan components

169 7.2 REVIEWING THE MASTER PLAN

Conserving and managing a World Heritage Site is a dynamic process. It does not stop with the production of a Master Plan document. Decisions beyond the scope or control of the Plan programme can change the conditions it aims to influence. The action plan may not be able to meet its goals if there are changes in the problems and issues it aims to address. Action plan objectives will need reviewing, and decisions made about best future strategies. In this way, it will continue to be flexible and relevant. This is in line with theManagement Guidelines for World Cultural Heritage Sites , which states that 'reviews at regular intervals can, if the planning process is scientific and logical, correct mistakes and refine concepts.'1

Implementing a system for reviewing issues and strategies will enable revision of the Master Plan, as and when this is necessary (Figure 7.2). This would entail updating and reissuing the concerned section, recording any change or addition under Plan amendments.

Reviewing the Plan will involve applying the following procedures in an integrated way.

a. Ongoing evaluation This involves continually looking at what you are doing and how you are doing it. The Project Implementation Team and other custodial staff perform this type of evaluation daily, as part of their regular routine.

b. An annual performance review This is a more formal level of evaluation, to check whether Master Plan objectives are being met and determining the most effective strategies for the following year. Using new information collected from amendment records, an annual progress review to measure progress against short-term Action Plan objectives. The site custodians and Project Implementation Team will conduct these annually, with support from the Technical Committee. Prioritizing conservation needs will be an important part of annual performance reviews, to ensure that funds spent effectively. This will be a Technical Committee responsibility, carried out in consultation with the Project Implementation Team.

c. Three-year audit The three-yearly Heritage Audit will evaluate the effectiveness of Master Plan proposals in safeguarding the site's values and authenticity.

d. Long-term programme evaluation At the end of its six-year term, a review will thoroughly examine the management plan's strategic components including: q the vision statement;

170 q the statement of goals; q identification of objectives; q Action Plan elements.

This will determine whether the plan still meets site and community needs, and whether a major programme overhaul or rethink is required. Long-term evaluation will involve a wide range of stakeholders, including the Executive Board, Site Commission, Technical Committee, Project Implementation Team and expert advisors. e. Periodic Reporting The World Heritage Committee requires periodic reports on the state of conservation of the World Heritage properties in its territories. The Committee stipulate that reporting must be carried out every six years. The site's next report is due in 2008.

The purpose of periodic reporting is to: q provide an assessment of the application of the World Heritage Convention; q provide an assessment of whether the property's World Heritage values are being maintained; q provide up-to-date information about the property, recording any change of circumstances and its state of conservation; q provide a means for regional cooperation and exchange of information and experiences between States Parties.

Section II ofThe State of Conservation of Specific World Heritage Properties requires a description of the management in place at the site, an assessment of the factors affecting the property and an analysis of the state of monitoring of the site.2 This details the property's condition, using key indicators for measure the state of conservation. If, as is the case with the Lahore Fort, no indicators were identified at the time of inscription, they need to be developed for future reporting. However, it is not clear whether this happened as part of the 2002 reporting exercise.

TheWorld Heritage Guidelines on Periodic Reporting state that: ‘Up-to-date information should be provided in respect of each of the key indicators. Care should be taken to ensure that this information is as accurate and reliable as possible, for example by carrying out observations in the same way, using similar equipment and methods at the same time of the year and day.'3

Based on this assessment, the guidelines require a description of proposed future actions. The proposed review programme of on-going evaluation, annual performance review, three year audit and long term programme evaluation will generate this 'up-to-date- information' for integration into the periodic reporting process.

171 ONGOING In House Evaluation (MG)

Review of Conservation Review of Planning and Review of Conservation Proposals (TC) Infrastructure Proposals (SC) Works (MG + TC)

Annual Performance ANNUALLY Review (MG + TC)

Review of Conservation Priorities (MG + TC)

EVERY 3 YEARS Heritage Audit (UNESCO)

Long Term Programme Evaluation (MG + TC + SC + EVERY 6 YEARS Expert Input) and World Heritage Committee Periodic Report

Figure 7.2 Diagram illustrating the review process (MG = Management Group, TC = Technical Committee, SC = Site Commission)

7.3 PERFORMANCE INDICATORS FOR REVIEWING IMPLEMENTATION OF THE MASTER PLAN

Performance indicators, or indicators of change, are the most effective tools for reviewing the implementation progress. They allow management and decision-makers to monitor progress and plan for mid-course corrections to programming. Indicators must be reliable signals that tell, directly or indirectly, the real facts and answer the question: 'How do we know whether we are achieving/ have achieved our goal?'

There three types of indicators, described below.

q Direct statistical indicators measuring quantifiable change in the short to medium term.

172 q Proxy indicators - normally quantitative but not directly relating to the expected Result, they are used when getting the full data is too time-consuming. There must also be an apparent connection between the proxy and expected result. q Narrative indicators that focus on the 'process of change' where the expected result may be qualitative and a non-statistical approach may be the only possible way to develop an indication of 'progress'. They focus on what happened because of the intervention.

Table 7.1 presents a set of basic, short-term performance indicators to start the review process and to stimulate further thought on measuring progress in the longer term.

No. Objective Performance Indicators

SMS 1 Management Structure Is the management structure formed and functioning? How many times have all parties met? Has liaison with Lahore City/Town governments begun?

SMS 2 Diversified Funding Has an Environmental Fund been set up? Scheme Has the Lahore Fort Heritage Fund BOG been appointed and are funds being solicited? Have the numbers of crafts trainees stayed the same or increased? Are sales and marketing taking place? How many publications have been funded?

SMS 3 Contributions in kind Has the FOSQ generated lists of active volunteers and contributors? How many people have contributed their time/ skill and/or materials?

SMS 4 Acknowledgment of Is there signage on site acknowledging Contributions contributors?

SMS 5 Informed management How many Master Plan seminars/ team presentations have been arranged? Are the main points and Action Plan translated into Urdu?

SMS 6 Conservation training Are staff appointed and is a training programme designed? How many people have attended courses and received certification? Is a broad range of institutions involved? Is PCI a member of the Asian Academy for Heritage Management?

173 SMS 7 Identification of job skills What percentage of guards, artisans, Maintenance workers and curatorial staff have received Core Competency Training?

SMS 8 Defined job scopes What percentage of all tasks have been recorded as SOP?

SMS 9 Use of management tools Has LFA been employed by management? Has the first UNESCO Heritage Audit taken place in 2007? Has a study of risk identified the requirements of the site? Is there a GIS manager on site and is database design completed?

SMS 10 International and How many managers/ researchers have regional networking attended regional and/or international professional meetings? Is there an international collaborative project at the site?

COS 1 Priorities for conservation How many Priority 1 tasks have been carried works out? Do they account for at least 50% of works?

COS 2 Basic conservation Are full records of decision processes and Procedures implementation available for all works? And complete sets of drawings?

COS 3 Standardized and Has existing documentation been substantially ongoing documentation expanded? What percentage of all buildings and structures has received detailed documentation? Has documentation of Pictured Wall begun?

COS 4 Conservation laboratory Has all old, non-functioning equipment been upgradingreplaced? What percentage of basic lab equipment and materials has been provided? How many staff hours of training? Is the lab computerized?

COS 5 Centralized architectural Are all architectural pieces consolidated in storage and inventory one place? Can individual items be retrieved by accessing a computerized register?

COS 6 Reinstallation of original What percentage of the stored elements have building elements been reinstalled?

174 COS 7 Conservation resource Is there a set of designated shelves in the Library Documentation Centre? What percentage of the basic resource list generated by UNESCO has been acquired?

COS 8 Architectural crafts Has the range of artisan skills been expanded training beyond the original four? How many trainees in total and how many have graduated to working on historic buildings? What percentage are women?

COS 9 Crafts resource collection Is there a designated location for the collection? Are all major building crafts represented?

COS 10 Development and use of Is more than 70% of conservation work being in-house conservation carried out by in-house rather than contracted capabilities expertise?

MM 1 Monitoring system Do records show that every building/structure has been monitored at least once a month? Do checklists reflect improvement in overall condition? How many maintenance recomm- endations have been made? and certified?

MM 2 Maintenance system How many maintenance tasks have been undertaken? Have all maintenance reports met the standards of the monitoring team and Technical Committee?

MM 3 Monitoring of Has 100% of all conservation work been conservation work monitored?

MM 4 Protection of Are all exposed remains mapped & assessed? archaeological remains Are any still being damaged by visitor traffic? Is an archaeological monitoring programme in place?

MM 5 Cleaning of the Is regular cleaning implemented? By women? monuments What percentage of the site has received initial cleaning? How many man days of specialist cleaning expertise has been spent on decorative elements?

MM 6 Damage from watering Are all points of impact eliminated? of plantation

175 REF 1 Formulation of a Research What percentage of the items in the research Framework framework is being pursued by scholars? How many regional and overseas academics are carrying out research?

REF 2 Publication programme Have basic maps and pamphlets been produced? How many scholarly and popular publications are published or in progress?

REF 3 Archaeological Has geophysical survey of the site been carried investigation programme out? Have excavations been planned/ implemented?

REF 4 Library upgrading Are basic technical and storage equipment needs met? Is the catalogue updated and being computerized?

REF 5 Archival protection What percentage of glass slides has been printed? What percentage of material has been scanned and catalogued? Is all material centrally stored?

VIP 1 Protection of fragile areas Have all identified areas been protected by from uncontrolled crowds direct and/or indirect means? Is there a visitor route plan in place? Is the study of carrying capacity complete and have the findings been integrated into visitor management plans?

VIP 2 Interpreting the site for Is the Site Interpretation Study complete and Visitors plans initiated for centres and galleries? Are “themes” identified and agreed? Are there design standards set? Are interim display and information improvements all in place?

VIP 3 Museums upgrading Is a basic brochure available? Have all back- cloths been replaced, labels expanded and general cleanliness improved? Have display panels been designed and/or installed? Is the inventory complete and computerized?

VIP 4 Community outreach How many heritage awareness events have been staged per year? How many Virsa Volunteers are assisting at the site? Have counts of school visitation increased? What percentage of school visits is involved in some sort of heritage education activity while on

176 site? Are women being effectively targeted?

VIP 5 Reinstating links with Is the consultancy complete? Has a the Walled City stakeholders group been formed and are initial steps underway?

VIP 6 Appropriate locations for How many amenities and services have been visitor services and relocated to the British Steps? Is 100% of non- Amenities canteen food consumption restricted to the Maidan?

VIP 7 Need for Historical Site Are all events open to the public? Are Use Guidelines Guidelines in place and being enforced?

VIP 8 Adaptive re-use of Have Building Modification Briefs been historical buildings prepared for all planned re-uses?

EPI 1 Buffer Zone revitalization Has garbage collection improved measurably? Have landscaping initiatives begun? Are negotiations underway to remove the rim market and other inappropriate land uses?

EPI 2 Inadequate and What percentage of parking is still in Hazuri inappropriate parking Bagh? Are interim parking areas being facilities utilized?

EPI 3 Rerouting of traffic and Is Hazuri Bagh pedestrian only? Are stopping creation of pedestrian and parking restrictions along the northern only areas periphery being enforced? Is the Traffic Planning study complete? Has traffic been diverted from Fort Road to the road south of Ali Park? Are plans for traffic diversion being actively pursued with City government?

EPI 4 Controls overdevelop- Is the CHIA study complete? and negotiation ment in environs of thewith city and town authorities for implemen- sitetation? Are assessments being carried out for on-site works?

EPI 5 Lines of communication Is the Integrated Urban Conservation Planning between site and city/ and Land Use Study underway or complete? Town Have lines of communication been set up between all levels of site administration and the surrounding government bodies?

177 EPI 6 On site improvement of Have all sources of leakage been stopped? Drainage Have stop gap measures been implemented? Is the consultancy study in progress or completed?

EPI 7 Improved waste removal Are upgraded bins in place and is there a visible improvement? Has a “No Litter” campaign been initiated?

EPI 8 Upgrading of toilet Are all old facilities closed and are new mobile facilities serviced toilets in use?

EPI 9 Upgrading of electrical Have all units attached to historical fabric Facilities been removed?

EPI 10 Illumination for evening Has an illumination plan been agreed? How Opening many evenings per week is the site open?

EPI 11 Improved security Are guard numbers increased? Has museum security been out-sourced? How any Virsa Volunteers regularly patrol the site?

Table 7.1 Proposed performance indicators

References

1. Fielden, Bernard and Jukka, Jokilehto, Management Guidelines for World Cultural Heritage Sites, ICCROM, Rome, 1993. 2. World Heritage Guidelines on Periodic Reporting, Operational Guidelines Sections 72-79 [Format and Content of periodic reports ], UNESCO, 1999. 3. ibid., Explanatory Notes to Format for Periodic reporting on the application of the World Heritage Convention, II.6

178 38,182 500,000 9,091 31,818

26,364 300,000 5,455

43,636 300,000 5,455

38,182 300,000 5,455

18,182

19,091 30,909

28,182

29,091

20,909 1,750,000

27,273

29,091 2,400,000

25,455 2,100,000

36,364

75,000 1,364

75,000 1,364

110,000 2,000 250,000 4,545

750,000 13,636

225,000 4,091 450,000 8,182 125,000 2,273 400,000 7,273 500,000 9,091 1,000,000

150,000 2,727

125,000 2,273

275,000 5,000 1,050,000 600,000 10,909 1,700,000

750,000 13,636 1,550,000

1,600,000

1,150,000

1,500,000

2,000,000

23,636 550,000 10,000 2,100,000

36,364 950,000 17,273 1,450,000

29,091 1,600,000

20,909 1,400,000

50,000 909 450,000 8,182

360,000 6,545 650,000 11,818 950,000 17,273 600,000 10,909 450,000 8,182 700,000 12,727

700,000 12,727 550,000 10,000 750,000 13,636

2,000,000

1,600,000

23,636 1,300,000

22,727 300,000 5,455 800,000 14,545

1,300,000

1,250,000

's Quadrangle

est) Burj est) Suite est) Iwans

's Quadrangle

's (Bari) Khwabgah

4 Shah Jahan 4.1 Shah Jahan 4.2 Diwan-e-Khass

4.3 Khwabgah-e-Shah Jahani 4.4 Hammam-e-Badhshahi 4.55 Arz Gah Paien Bagh Quadrangle 130,000 2,364 520,000 9,455 800,000 14,545

5.1 Paien Bagh Quadrangle 5.2 Imperial Zenana Mosque 5.3 Kala Burj 5.4 Khilwat Khana 5.56 Lal Burj Hathi Reception Court 1,150,000 6.1 Hathi Reception Court 6.2 Sikh Temple 100,000 1,818 200,000 3,636 6.3 South Dalans 6.5 Gor Darwaza 6.4 North Dalans

7.1 Shah Burj Forecourt 77.2 Shah Burj Athdara 400,000 7,273 160,000 2,909 650,000 11,818 7.3 Shah Burj Quadrangle 7.4 Shish Mahal North face 7.5 East Sehdara 7.6 South Dalans 7.7 West Sehdara Pavilion S 7.8 Naulakha Pavilion

7.9 West Sehdara Pavilion N

8 Shah Burj Darwaza 8.1 Shah Burj Darwaza 8.2 Hathi Paon & Ghulam Gardish

3.7 Jahangir

3.8 Maghribi (W 3.9 Maghribi (W 3.10 Maghribi (W 3.11 Zenana Hammam

155