48019 DIRECTIONS in Urban Development Cultural Heritage and Sustainable Tourism Thematic Group Infrastructure and HerItage conservatIon: opportunItIes for urban revItIlIzatIon and economIc development Katrinka Ebbe C ultural endowments such as traditional architecture, unique streetscapes, and historic sites are increasingly recognized as important economic resources in both developed and developing countries. Cities are often an important focal point for development based on these resources because they provide concentrations of heri- tage assets, infrastructure services, private sector activ- ity, and human resources. Improving the conservation and management of urban heritage is not only important for preserving its historic significance, but also for its potential to increase income-earning opportunities, city livability, and competitiveness. World Bank-financed projects have found that heritage con- servation has increased city livability by preserving streets and neighborhoods built at a human scale, public areas that support positive community interaction, and green spaces World Bank projects have supported revitalization of St. that offer recreational activities. By preserving their heri- Petersburg's urban landscape, which is one of the city's major cul- tural assets and a powerful resource for branding. tage, cities can create a unique sense of place and singular urban landscapes, developing strong branding and condi- able cultural and natural resources. For example, developers tions to attract investors. This is especially true for investors exert pressure to demolish low-rise traditional buildings and in tourism, which is one of the largest industries in the world eliminate parks in favor of high-density developments, and today and has a track record of creating significant levels of municipalities install needed infrastructure in a manner that employment for unskilled and semi-skilled workers. In addi- has unnecessarily negative impacts on traditional cityscapes. tion, improving a city's self-image and identity through rec- As urban populations rapidly expand, local resources tend ognition of heritage assets has been shown to increase civic to be scarce and most municipalities struggle to provide pride and energize communities to actively address a wide basic infrastructure services, making investment in heritage range of development and livelihood issues. conservation a low priority. Therefore, it is increasingly Today's rapidly-urbanizing cities, with uncontrolled growth important for World Bank-financed projects to include well- and informal expansion, pose a significant risk for irreplace- thought-out interventions that include heritage conservation elements because of their potential contributions to eco- nomic development and urban revitalization. What is Cultural Heritage? The conservation of cultural heritage supports UNESCO defines cultural heritage under several main categories: urban revitalization by preserving city livabil- tangible Heritage ity, increasing competitiveness, and creating a ·Immovable(e.g., traditional buildings, historic city centers, wide range of income-earning opportunities. and archaeological sites); ·Movable(e.g., paintings, sculpture, coins, and manu- The Cultural Heritage and Sustainable Tourism Thematic scripts); ·Underwater (e.g., shipwrecks, and ancient cities); Group (CHST) was established in 2004 as a network of prac- titioners to mainstream support for heritage conservation Intangible Heritage(e.g., oral traditions, performing arts, rituals, knowledge, and skills); and into infrastructure, private sector, and social development natural Heritage(e.g., natural sites with cultural aspects such as cultural landscapes and physical, biological, or geo- Katrinka Ebbe is a World Bank consultant who special- logical formations). izes in cultural heritage, community development, and urban revitalization. tHe World banK urban development unIt | February 2009 dIrectIons In urban development projects. The thematic group reflects the multi-disciplinary characteristics of the CHST family, highlighting the wealth of Project Profile: Jordan Cultural Heritage, Tourism, information and experience available among more than one and Development Project (P081823) Loan Amount: US$ hundred Bank professionals. In the urban sector, it is clear 56.0 M; Heritage Components: US$56.0 M that infrastructure projects can provide an entry point for effective interventions in heritage conservation and develop- The Jordan Cultural Heritage, Tourism, and Urban Development Project* is paradigmatic of the urban sec- ment. Conversely, many task team leaders find that discus- tor's support for cultural heritage and tourism. In many of sions of lending that recognize the value of local heritage Jordan's secondary cities poverty is high; environmental provide a positive starting point for dialogue on downstream service delivery is poor; traffic is chaotic; and urban plan- lending operations addressing broader-based infrastructure ning and management are weak. While these cities have investment needs. This note focuses on the rationale for tremendous cultural heritage resources, they are not man- World Bank-financed infrastructure projects that include or aged or maintained to effectively create economic oppor- focus on conservation of cultural heritage assets either for tunities through tourism. their own value or as a component of infrastructure and eco- The project responds to Jordan's National Agenda, which nomic development strategies.1 designates cultural tourism as a key pillar of its economy. Tourism accounted for about 11% of GDP in 2005, is Jordan's Urban Revitalization, Heritage, and Tourism largest export sector, its second-highest producer of for- eign exchange, and its fifth-largest employer. However, recent studies by the UNWTO indicate that Jordan has not World Bank experience with the connections between urban kept pace with regional competitors. revitalization, heritage, and tourism includes the urban The project consists of four main components: (i) urban upgrading and rehabilitation of historic buildings undertaken infrastructure improvements and cultural landscape regen- by the Georgia Cultural Heritage Project#, which is credited eration in five historic urban centers5, (e.g., upgrading of with playing a critical role in stimulating the revitalization of streets, drainage, sidewalks, and signage; rehabilitation Tbilisi's Old Town. It led private investors to renovate their and cleaning of pivotal public spaces and building facades; own buildings in the area; to the opening of hotels, restau- and traffic and parking management plans); (ii) construc- rants, shops and galleries; to an influx of residents, offices, tion of a new visitors' center at the Petra Sanctuary; (iii) and tourists; and to a significant increase in property values. financial and technical assistance to local entrepreneurs, In the Bosnia-Herzegovina Pilot Cultural Heritage Project#, investors and community groups to encourage small- and medium-enterprises; and (iv) capacity building and moni- the reconstruction of the iconic Mostar Bridge and other toring. While urban revitalization and tourism develop- municipal infrastructure investments made a significant con- ment are the primary project focus, cultural heritage is tribution to revitalization of the city center, reconciliation supported as an important resource for tourism, with the among residents, and the reestablishment of the local tourism protection and enhancement of the heritage providing ben- industry (officials found that tourism arrivals in 2004 stood at efits to all three sectors. 220,000, up from only 50,000 the preceding year).2 One of the most highly-visible and dynamic links between heritage conservation and local economic development lies in the potential for cultural and natural assets to attract tour- ism investment and spending. While global tourism has grown steadily at 7% per year over the last 5 years, recent growth has been limited by the financial crisis. The UN World Tourism Organization (UNWTO) reports that it "expects 2009 international tourism [growth] to be in the range of 0 percent to a 2 percent decline."3 However, the UNWTO also reports that the niche markets of adventure and cultural tourism are two of the strongest segments of the tourism industry and that culture has become a component in almost 40% of all interna- The Jordan project will redesign and expand traditional public space in tional trips4. theurbancoreofSalttosupportmixeduseandenhancethecityscape. The economic slowdown is an opportunity for developing nations to improve their strategies, infrastructure, and tourism products the development of the service industry and increased demand in order to establish a strong base for future sustainable tourism. for local food production, handicraft manufacturing, and other The investments in infrastructure and heritage conservation that cultural industries. The number of small and medium enterprises are advantageous for tourism development are also key elements will grow as economic opportunities become apparent. of creating livable cities-in other words, improvements that sup- port tourism also enhance residents' economic opportunities and Cultural Heritage in Transportation Projects standard of living. Moreover, if short-term crisis actions can be aligned with the longer-term poverty and climate needs, the over- Many World Bank transport projects have included pro-active all industry structure may actually be strengthened. components to support conservation and management of cul- When the industry revives, cities in developing countries with a tural heritage assets. For example, the Xian Sustainable Urban strong basis for tourism development will be better poised to Transport Project* in China will develop 44 kilometers of bicycle attract private sector and foreign investors who see opportu- paths in the urban core to link the city's key urban heritage sites nities in developing hotels and other tourist-related activities. and reduce traffic congestion. The project will also build an access Employment opportunities for local workers will increase through road to a newly-excavated archaeological park. The Cambodia Road Rehabilitation Project# restored 10 ancient bridges on 2 February 2009 National Road 6 connecting Phnom Penh to Siem Reap and the World Heritage site of Angkor. The bridges were part of the Project Profile: City-Port of Limon Project (P085539) Angkor Dynasty's "royal route" and some of the most highly sig- Loan Amount: US$ 72.5 M; Heritage Components: US$ 55.1 M nificant examples of civilian architecture in the country. The City-Port of Limon Project* in Costa Rica addresses Typical transport sector goals such as reducing traffic emissions, the lack of reforms and inefficiency that have made noise, and vibration to improve residents' quality of life also have the port one of the central bottlenecks to Costa Rica's positive impacts on heritage areas. Pollution damages traditional increased trade and competitiveness. The city of Limon, surfaces and traffic vibration undermines ancient structural ele- which surrounds the port, is suffering from the loss of ments, while traffic noise detracts from the sense of history and its cultural and natural assets; high crime and unemploy- quiet contemplation that many heritage sites offer. Projects that ment rates; and racial tension. In addition, conflicts between trade unions and the port businesses have led support transport focal points such as container ports and rail- to periodic demonstrations and strikes, which have para- road terminals have long recognized that these facilities depend lyzed the city and the port. on their surrounding regions and cities for access to skilled labor, efficient services and integrated transportation links. As dem- The objective of the project is to revitalize the city, prepare for the modernization of the port, and increase onstrated in the City-Port of Limon project profile, support for residents' ability to capture revenues from the tourists cultural heritage assets has been used as part of strategies to revi- who currently disembark from cruise ships, but bypass talize lagging cities and regions that are hampering trade growth the city to visit sites to the north. Project components and competitiveness. include: (i) improving the protection and management of Limon's cultural and natural heritage; (ii) improving the city's sewage system and reducing urban flooding; Infrastructure Upgrading in an Historic Context (iii) fostering a more efficient and accountable local gov- ernment; (iv) creating new employment opportunities With attention to appropriate design and materials, infra- through small and micro-enterprises; (v) mainstreaming structure projects can achieve their goals while conserving crime prevention through environmental design; and (vi) traditional streetscapes and the urban fabric. General guide- supporting the port modernization process. lines for installing services include: The operation could have addressed the port and the ·fixtures and connections compatible with historic designs city under two separate projects. However, it was rec- and materials; ognized that to enhance the synergies between heri- ·minimal destruction of historic structures and streetscapes; tage conservation and urban economic development, ·access for service maintenance and renewal that does not a single project would be the appropriate approach. require disruption of historic materials or structures; and Conservation of the tangible and intangible heritage of the city was seen as a key ingredient in reviving ·reversible processes that allow for further restoration of the city's unique character, sense of pride, and socio- sites when future technology or research findings become cultural dynamism. The expected synergies from this available. holistic approach include: (i) the port's modernization To create effective policies for conservation in an urban setting, and improved interface with the city, leading to new it is vital that active consultation be established between all local opportunities for residents, such as the growing cruise agencies that have responsibility for the built environment and industry and linkages to external markets; and (ii) the local communities. Protecting cultural property must be sup- city's improved physical infrastructure, and economic ported with coordinated policies and action at the local level.6 and socio-cultural conditions, contributing to the social and political viability of port reform. Cultural Heritage in Water and Environmental Management Projects In China, several water and sanitation projects have supported the conservation of valuable heritage assets. In the Yunnan Earthquake Reconstruction Program#, a portion of the credit was set aside, based on local government requests, to repair and rehabilitate heritage assets that had sustained severe earthquake damage. Among the assets repaired were water and drainage systems compatible with the traditional network of streams and channels that provide fresh water to every part of the World Heritage City of Lijiang. In the Zhejiang Urban Environment Project*, a component for the municipality of Shaoxing included renovation of traditional housing and conservation in five historic neighborhoods that are laid out along an extensive canal system The City-Port of Limon project aims to improve the city's infra- structure, cultural dynamism, and economic conditions, thereby and represent a fast-disappearing traditional waterside lifestyle. contributing to the social and political viability of port reform. In addition to sewer connections, the project rehabilitated the canal system through dredging, embankment repair, and rein- statement of a closed canal section to improve water circulation The development of large-scale water, sanitation, and environ- and create tour boat circuits. mental management projects in China has also led to invest- ments in heritage conservation that are not directly related Incorporating heritage conservation into urban projects has supported the overall goal the infrastructure improvements. Local officials have begun of revitalization, significantly increased client requesting heritage conservation components to address the satisfaction, and led to a robust new business loss of their historic buildings and traditional streetscapes, due to line for the World Bank in China. the extremely rapid urbanization that is occurring in the country. Consequently, the issues of environmental quality and urban revi- 3 dIrectIons In urban development Project Profile: Chongqing Urban Environment talization in China's World Bank projects have been connected to Project (P049436) Loan Amount: US$200 M; Heritage assisting cities in conserving their traditional urban fabric. Component: US$4.9 M Conclusion The main focus of the Chongqing Urban Environment Project* in China is to assist the municipality: (i) recover from Many of the World Bank's client countries have been successful the degradation of its water and land resources; (ii) protect in supporting cultural heritage activities within some large infra- the quality of its rivers and water supply; and (iii) maintain structure projects. These projects have used heritage as an entry water quality for the wider Yangtze River Basin. During proj- point for opening up opportunities for local economic develop- ect identification, city leaders requested that a component ment. The Bank's focus on sustainable development and poverty for heritage conservation be included in the project to help maintain their historic built environment; strengthen the local reduction means that it must aim to support heritage conserva- community's identification with their history; increase the tion and tourism development that can improve standards of liv- value of the built heritage and surrounding real estate; and ing, increase income-earning opportunities, and generate wealth improve tourism potential. for the poor. Combining the conservation of heritage assets The local Cultural Heritage Bureau, in collaboration with inter- and improving infrastructure services provides more livable and national specialists, developed a cultural heritage master plan dynamic environments that directly impact the ability of poor and identified the Huguang Huiguan as a high priority site for communities to take advantage of the opportunities for a better immediate conservation. The Huguang Huiguan is an ancient life, while at the same time supporting city competitiveness. merchants' guild complex that was constructed and modified during the Qing dynasty (1644-1911). It is one of the last his- The Cultural Heritage and Sustainable Tourism Thematic toric sites in the heart of modern Chongqing. The project and Group (CHST), hosted at the Urban Anchor, has become the the Italian Trust Fund for Culture supported detailed planning focal point for heritage and sustainable tourism work, and has for conservation of the guild complex and an international been able to provide support to regional teams implementing specialist, who worked with local conservationists on histori- operations that affect cultural and natural patrimony in client cal research and documentation; surveys of physical deterio- countries. CHST is helping to ensure coordination, dissemi- ration; working drawings; and restoration of all exterior and nate knowledge and learning, and facilitate collaboration with interior elements. partnership institutions including UNESCO and UNWTO. Conservation of the Huguang Huiguan complex has contrib- uted to Chongqing's efforts to improve the quality of life for Endnotes its citizens and enhance economic development by providing a focal point for the municipality's civic events, creating a 1 Many World Bank projects working on heritage conservation have new tourism development site, and stimulating small busi- received generous support from the Italian Trust Fund for Culture and nesses and employment in the site's surrounding neighbor- Sustainable Development (ITFCSD). Discussed in this note are ITFCSD- hoods. The project has become a model for restoration in supported projects in Bosnia and Herzegovina, China (Chongqing and Zhejiang), and Jordan. China, based on international best practice and the sustain- 2 Taboroff, June and Katrinka Ebbe. Europe and Central Asia Region Review: able reuse of the historic buildings (e.g., a theater, exhibit Cultural and Natural Heritage Conservation and Community Based Tourism. hall, museum, cultural center, and shops). This conservation World Bank, Washington DC (Unpublished 2007). work responded to client demand, increasing client satisfac- 3 World Tourism Organization: http://www.unwto.org/media/news/en/ tion, and led to requests for additional similar projects in China. press_det.php?id=3481&idioma=E 4 Saffrey, Alan. An Analysis of Sarajevo, Herzegovina, and Krajina Tourism Regions. USAID, 2006. 5 These historically-and-culturally important cities are Jerash, Karak, Madaba, Salt, and Ajloun. 6 Ebbe, Katrinka and Donald Hankey. Ningbo, China - Cultural Heritage Conservation in Urban Upgrading. World Bank Series: Culture and Sustainable Development. World Bank, Washington, D.C., 1999. # indicates that the project is closed and * indicates that the it is active. Acknowledgements The World Bank benefits from both the support of the Italian Government in providing funding for the preparation of proj- ects including heritage components and the continuous coop- eration and fruitful partnership with UNESCO and UNWTO in sharing of knowledge and data. Thanks to these valuable partnerships, the World Bank has initiated good practices and is now ready to share them with partners and move forward The rehabilitation of one of the last historic sites in the ancient core of Chongqing has made it a focal point for civic events, tourism, and small with its own financing and support of external donors and business development. partners, including stakeholders from the public and private sectors. Contact the World Bank Urban Development Unit in Copies of this Note are available at: Urban Development Unit, The World Bank Telephone: 202-473-0409, Fax: 202-522-3232 Development http://www.worldbank.org/urban urbanhelp@worldbank.org IRECTIONSD If you are interested in submitting an article for consideration, please contact us at the email address above. Urban The views expressed in DIRECTIONS in Urban Development are those of the authors and do not necessarily reflect those of the World Bank. 4