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REPORT on the JOINT UNESCO/ICOMOS/ICCROM REACTIVE MONITORING MISSION to STONE TOWN of ZANZIBAR (United Republic of Tanzania) 29 OCTOBER - 3 NOVEMBER 2014

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REPORT on the JOINT UNESCO/ICOMOS/ICCROM REACTIVE MONITORING MISSION to STONE TOWN of ZANZIBAR (United Republic of Tanzania) 29 OCTOBER - 3 NOVEMBER 2014 REPORT ON THE JOINT UNESCO/ICOMOS/ICCROM REACTIVE MONITORING MISSION TO STONE TOWN OF ZANZIBAR (United Republic of Tanzania) 29 OCTOBER - 3 NOVEMBER 2014 TABLE OF CONTENTS 1. BACKGROUND TO THE MISSION 1 1.1. INSCRIPTION HISTORY 1 1.2. INSCRIPTION CRITERIA AND STATEMENT OF OUTSTANDING UNIVERSAL VALUE 1 1.3. AUTHENTICITY ISSUES RAISED IN THE ICOMOS EVALUATION REPORT AT THE TIME OF THE INSCRIPTION 5 1.4. EXAMINATION OF THE STATE OF CONSERVATION BY THE WORLD HERITAGE COMMITTEE AND ITS BUREAU 5 1.5. JUSTIFICATION OF THE MISSION 12 2. NATIONAL POLICY FOR THE PRESERVATION AND MANAGEMENT OF THE WORLD HERITAGE PROPERTY 13 2.1. HERITAGE LEGISLATION 13 2.2. INSTITUTIONAL FRAMEWORK 13 2.3. MANAGEMENT STRUCTURE 16 3. IDENTIFICATION AND ASSESSMENT OF ISSUES / THREATS 18 3.1. MANAGEMENT EFFECTIVENESS 18 3.2. THE MAMBO MSIIGE PROJECT. 24 3.3. OTHER DEVELOPMENT PROJECTS 32 3.4. POSITIVE OR NEGATIVE DEVELOPMENTS IN THE CONSERVATION OF THE PROPERTY SINCE THE LAST REPORT TO THE WORLD HERITAGE COMMITTEE 34 3.5. FINDINGS AND OBSERVATIONS 37 4. ASSESSMENT OF THE STATE OF CONSERVATION OF THE PROPERTY 38 4.1. REVIEW OF THE MAINTENANCE OF CONDITIONS AND INTEGRITY OF THE ATTRIBUTES THAT CONTRIBUTE TO THE OUTSTANDING UNIVERSAL VALUE OF THE PROPERTY 38 4.2. REVIEW ANY FOLLOW-UP MEASURES TO PREVIOUS DECISIONS OF THE WORLD HERITAGE COMMITTEE ON THE STATE OF CONSERVATION OF THE PROPERTY AND MEASURES WHICH THE STATE PARTY PLANS TO TAKE TO PROTECT THE OUTSTANDING UNIVERSAL VALUE OF THE PROPERTY 45 5. CONCLUSION AND RECOMMENDATIONS 47 5.1. SUMMARY OF FINDINGS 47 5.2. RECOMMENDATIONS FOR ANY ADDITIONAL ACTION TO BE TAKEN BY THE STATE PARTY 48 5.3. DRAFT RECOMMENDATIONS TO THE WORLD HERITAGE COMMITTEE 50 5.4. RECOMMENDATION AS TO WHETHER THE LEVEL OF THREATS TO THE PROPERTY WARRANTS THE PROPERTY BEING PLACED ON THE LIST OF WORLD HERITAGE IN DANGER. 52 6. LIST OF ACRONYMS 53 7. ANNEXES 54 A1. DECISION OF THE WORLD HERITAGE COMMITTEE 55 A2. MAP OF THE WORLD HERITAGE PROPERTY AND ITS BUFFER ZONE 56 A3. MISSION PROGRAMME 58 A4. LIST OF WORKINGS DOCUMENTS AND DECISIONS RELATIVE TO THE STONE TOWN OF ZANZIBAR WORLD HERITAGE PROPERTY 60 A5. MISSION TERMS OF REFERENCE 62 A6. COMPOSITION OF MISSION TEAM 66 A7. RECOMMENDATIONS OF THE 2013 ICOMOS ADVISORY MISSION 66 A8. PHOTOGRAPHIC RECORD 70 ACKNOWLEDGEMENTS The team members of the joint UNESCO World Heritage Centre, International Council on Monuments and Sites (ICOMOS) and International Centre for the Study of the Preservation and Restoration of Cultural Property (ICCROM) Reactive Monitoring Mission extend their thanks to the State Party of the United Republic of Tanzania, and in particular to Dr. Donatius Kamamba, Director of the Department of Antiquities, Ministry of Natural Resources and Tourism, and Mr. Issa Makarani, Director General of the Stone Town Conservation and Development Authority (STCDA) for the warm welcome extended to our Mission team and for developing a comprehensive schedule that included meetings with relevant stakeholders and guided visits of the property. During these meetings and on-site visits, the Mission greatly benefited from the information and kind cooperation provided by the site manager Mr. Makarani and his staff. Dr Muhammad Juma of the Department of Urban and Rural Planning provided valuable additional insights. We also extend our heartfelt thanks to the Deputy Principle Secretary of the Ministry of Lands, Housing, Water and Energy, Mr. Mustafa Aboud Jumbe for twice meeting with the mission team. Through the agency of the STCDA, well-attended individual meetings were held with the Zanzibar Municipal Council, the Department of Fisheries and Marine Resources and the Zanzibar Port Corporation. Additionally a meeting was held with stakeholder government departments, which included the Zanzibar Investment Promotion Authority, the Ministries of Finances, Health and Human Services, Infrastructure and Communications, Education and Vocational Training, the Department Antiquities, the Department of Construction, the Zanzibar Commission for Tourism, the Zanzibar Social Security Fund, the National Archives, the Zanzibar Land Tribunal, the Zanzibar Water Authority, the WAKF Commission and the UWZ-Zanzibar Association of the Disabled. The team members of the mission extend their thanks to all the attendees of this meeting for their active participation and open communication and dialogue. The mission also had the privilege of meeting with Minister Hon. Omar Yussuf Mzee, Minister of Finances and Economic Affairs, and Minister Hon. Ramadhan A Shaaban, Minister of Lands, Housing, Water and Energy. We wish to extend our heartfelt thanks for their time and candid discussion. We wish to extend our sincere thanks to the inhabitants of the Stone Town of Zanzibar, especially the Reclaim Women’s Space in World Heritage group for the use of their hall for the stake-holder meeting and the general public for their friendly reception and open dialogue established during our consultation meetings. The UNESCO office in Dar es Salaam, Tanzania was indispensable in assisting with mission preparations, and our gratitude is extended to the Director of the Office, Ms. Zulmira Rodriguez for taking the time to join us during the first day of the mission meetings, which included the visit to Mambo Msiige. We would also like to credit the 2011 Reactive Monitoring Mission team and the 2013 ICOMOS Advisory Mission expert for the valuable background information provided in their reports. ii EXECUTIVE SUMMARY AND LIST OF RECOMMENDATIONS Based on Decision 38 COM 7B.55 (ANNEX A1) adopted by the World Heritage Committee at its 38th session (Doha, June 2014), concerning the State of Conservation of the World Heritage property “Stone Town of Zanzibar”, inscribed on the World Heritage List in 2000, and taking into consideration the Operational Guidelines for the Implementation of the World Heritage Convention, the objective of the UNESCO World Heritage Centre, International Council on Monuments and Sites (ICOMOS) and International Centre for the Study of the Preservation and Restoration of Cultural Property (ICCROM) Reactive Monitoring Mission was to assess the implementation of mitigation measures and the State of Conservation of the property with the aim to assess whether the condition of the property meets the criteria for inscription on the List of World Heritage in Danger. The mission took note of the extensive dialogue among the State Party, the Advisory Bodies and the World Heritage Centre over a number of years, including discussions leading to an agreed-upon matrix to be used as a guideline for intervention at the Mambo Msiige building site. Unfortunately, the mission confirmed that external and internal alterations were carried-out for the creation of a new hotel at the Mambo Msiige building in contravention of the agreed-upon matrix and guidelines, the Management Plan and the Heritage Impact Assessment (HIA). The project has additionally encroached on the protected green space, a protected vista as well as the public beach. The Mambo Msiige project is symptomatic of a large scale break-down in management in the World Heritage property, in part due to the non-implementation of the 2008 Management Plan and the 2010 Stone Town Conservation and Development Act. The Outstanding Universal Value of the property was found to be under threat, in short due to: • The completion of the Mambo Msiige project in conflict with the provisions of the agreed -upon matrix and guidelines, and with disregard to the requests of the World Heritage Committee (36 COM 7B.49 (2012) and 38 COM 7B.55 (2014)) • Application of inappropriate restoration techniques and decay of the general building stock; • Lack of both management and assessment expertise; • General lack of awareness of the Outstanding Universal Values and the mechanisms required for their protection among government bodies. • Continuous erosion of the public open space system; • An inability to balance the interests of conservation with required development along with the number of ad-hoc large-scale projects planned by various stakeholders; • And a lack of political will to conserve the qualities that contribute to the fragile Outstanding Universal Value of Stone Town of Zanzibar. The mission concludes that the conditions have been met to justify the inscription of Stone Town of Zanzibar on the List of World Heritage in Danger as a serious and specific danger iii threatens those core attributes that furnish the property with its Outstanding Universal Value, and therefore recommends that the World Heritage Committee inscribe the Property on the List of World Heritage in Danger. The mission recommends that the World Heritage Committee: • Request the State Party to urgently implement corrective measures, starting with a review of the recommendations regarding the proposed minimum requirements for mitigation at the Mambo Msiige project contained in the Report of the 2013 ICOMOS Reactive Monitoring Mission and this 2014 Report on the Joint UNESCO/ICOMOS/ICCROM Reactive Monitoring Mission and to respond with a proposal, which included timeframes for their execution, including the protection of the public nature of the remnant protected green space north of the new building, noting that the recommendations contained in the 2014 Report on the Joint UNESCO/ICOMOS/ICCROM Reactive Monitoring Mission are the baseline for minimum acceptable mitigation measures; • Request the State Party to implement the 2008 Heritage Management Plan and the 2010 Stone Town Conservation and Development Act and ensure
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