S-5tre w v 0- inable D., en ;F~~~~~ 4 iolti1 of i1i 2t 19253 ;!~ ~ ~ ~ a '1d999 i;'. , S , S S o'''""a | I 1t Tii~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~d"E Culture in Sustainable Development Case Study: Lahore, Pakistan Conservation of the Walled City Donald Hankey, Editor South Asia Infrastructure Sector Unit The World Bank The International Bank for Reconstruction and Development/THE WORLD BANK 1818 H Street, N.W. Washington, D.C. 20433 U.S.A This study has been prepared by the staff of the World Bank and international consultants. The judgments expressed do not necessarily reflect the views of the Board of Executive Directors or of the governments they represent. CONTENTS Foreword .....v................................................ v Abstract ........ ............................................... vii Acknowledgments ............................................... ix Executive Summary . .............................................. xi Introduction ..................................................... xv Chapter I. Conservation Theory and Experience ..................... 1 Chapter II. Conservation in Pakistan ............... ............... 33 Chapter III. Conservation in Lahore ................................. 45 Chapter IV. The Conservation Experience at Project Level ..... .......... 53 Chapter V Parallel Examples of City Conservation and Policy Development ................................... 67 Technical Case Studies 1. The Restoration and Reuse of the Delhi Gate, Lahore ..... ......... 77 2. Conservation and Reuse of the Shahi Hamman ..... .............. 95 Appendices 1. Abbreviations and Acronyms ....... ............... 121 2. Definition of Terms. ...................... 123 3. Glossary of Urdu Terms ...................... 125 4. Organizations Contacted ...................... 129 References ......................... 131 iii iv . . . . . . . . FOREWORd The Fort and Shalamar Gardens in Lahore, Pakistan, were added to the UNESCO World Heritage List in 1981. The City of Lahore is representative of other smaller cities in Pakistan with equally valuable cultural and architectural heritage. These historic sites are important cultural, educational and economic assets that need to be assessed, understood, maintained, presented, and promoted for the benefit of Paki- stan and the whole region. The value of conserving these assets is now becoming more generally appreciated. But the survival of historic cities is more at risk than ever before. As with heri- tage world wide, and in particular the historic urban areas of the developing world, important monuments and characteristic urban tissue are fast disappearing under the effects of economic and physical change, rapid population growth, and poorly planned economic development. While the benefits of conservation and protection of the heritage are becoming more generally appreciated, the means of planning and achieving such conservation remains to be developed in many parts of the world. This report was commissioned by the South Asia Infrastructure Unit of World Bank to review the processes of conservation, the related administrative organiza- tions, and the procedures for project control and execution in Pakistan. The con- sultants' observations are mainly based upon research and practical experience gained in Lahore and in other countries. It is from this experience that comparative data has been drawn. It is hoped that this document will be of use to those concerned with the conservation of cultural property. Ismail Serageldin Vice President, Special Programns The World Banlr v vi AbSTRACT Pakistan's rich and varied heritage spanning 5,000 years represents a variety of cul- tural and architectural influences, each one symbolizing a valuable source of educa- tion, leisure, tourism, cultural appreciation, and research. The historic cities in Pakistan face the same danger of obliteration as heritage in other parts of the world, disap- pearing fast under the effects of rapid economic and social changes coupled with random urbanization. Lahore is a jewel in Pakistan's heritage. The technological, cultural, and population changes in Lahore are not compatible with the planning, form, and ancient structures of the Walled City. The central government and the local administrations are aware of the importance of integrating conservation in de- velopment planning and urban upgrading procedures. In this context the World Bank and the Punjab Government initiated the Punjab Urban Development Project. One of the project components in Lahore is the conservation of the Walled City. This paper proposes a framework for developing a universally accepted strat- egy for the integraton of conservation with development planning drawing upon the lessons learned from the experience in the Walled City of Lahore, and making comparisons with similar projects in other urban areas of the world. The paper examines the following elements at length: (a) background theory for such integra- tion and the need for conservation, the principles of such policy and the adminis- trative requirements for implementation of the project in detail; (b) conservation initiatives in the rest-of Pakistan and their importance with particular emphasis on the implications of laws and their applications, which in the case of conservation policy is more communal; and (c) the details of the experiences and conclusions of the projects undertaken in Lahore. The paper describes the conservation experience in Tunis and Fez and attempts to draw parallels with the experience in the Walled City of Lahore in which commu- vii CONSERVATICN OF THE WALLED CITY Tim! er workshop on site (Shahi Haimam) nity participation is emphasized. It concludes that the lessons learned would be important precedents for future conservation particularly in areas of funding, public participation, city and project planning, and execution. The study encourages initi- ating a conservation for the exchange of technical information. viii ACkNOW[EdiMENTS The authors wish to thank His Excellency the Governor of the Punjab, Mian Muhammad Azhar, who has taken a keen interest in the conservation activities in Lahore. Of particular importance in the completion of this study was the advice, admin- istrative support, and transport contributed by the Lahore Development Authority (LDA). Thanks are especially due to the former Director General, Sheikh Abdul Rashid, and to the Chief Metropolitan Planner, Mr. Shaukat Jamal IKhawaja, who has also reviewed the study. The following persons and organizations are gratefully thanked for their valu- able contributions and comments: Mr. Riaz Mahmood, Lord Mayor of the Metro- politan Corporation Lahore; Dr. Ahmad Nabi K.han, Director General, Department of Archaeology, Government of Pakistan; Dr. M. Rafique Mughal, Director, North- ern Circle; Mr. Ihsan H. Nadeem, Pakistan Institute of Archaeological Training and Research; Mr. Saleem Akhtar Rana, Chief Administrator, Department of Auqaf; Mr. M. Waliullah IKhan, Advisor to the Punjab Department of Archaeology; Ms. Sajjida H. Vandal, Principal, and Professors Ejaz Anwar and Sajjad Kausar, Federal Evacuee Trust, the National College of Arts; Mr. IKamil Khan Mumtaz of Anjuman-e-Mimaran; Mr. Zafar Omer, General Secretary, and Mr.L.A.Rehman, Lahore Conservation Soci- ety; Mr. and Mrs. Lari, Karachi Heritage Foundation; and Mr. and Mrs. Oureshi, architects. UNICON. This paper was prepared by Gilmore Hankey IKirke Ltd. (GHK) in association with Pakistan Environmental Planning Architectural Consultants (PEPAC) under the direction of Ms. Paula Donovan, Division Chief, and Mr. Geoffrey Read, Task Man- ager (EMENA), the World Bank, Washington. The international funding agencies, notably the World Bank have responded to requests for support and, with the Pakistan Urban Development Programme (PUDP) ix CONSERVATION 01 THE WA.EL) CITfT and other projects. have contributed towards different sectors of urban infrastruc- ture and services upgrading and conservation as part of a wider program to support rational urban growth. The projects and work of this report have been carried out with the benefit of World Bank funding. The study was directed by Mr. Donald Hankey of GHK, and carried out in association with Syed Muhammad Irfan (PEPAC) who reviewed the text; Dr. Abdul Rehman, Conservation Adviser (PEPAC), and Mr. Kevin Tayler, Infrastructure Ad- viser (GHCR) Fieid research was conducted by Mr. Ian Harper, Team Leader, who also supplied most of the photography; and Mr. Kornelis Holstein, Conservation Architect of GHK. Word processing was by Mr. Muhammad Shahzad, and Mr.Tariq Jarnil. LDA in Lahore and Miss Helen Nagle in London. The study was edited and reviewed in London by Donald Hankey, and John Harrison, and with helpful advice from Sir Bernard Fielden. x EXECUTiVE SUMMARY Lahore is one of the jewels of Pakistan's heritage. But it is under threat from popu- lation growth, technological change, and cultural influences that are not compatible with the planning, form, and ancient structures of the Walled City. Both the local administration and central government have become increasingly aware of the need to include conservation as an integral part of the development planning and urban upgrading procedures. The Introduction looks at the historical background and objectives of the project, examines the structure of the report, and notes areas of further research required. Chapter I examines the background theory for conservation and the relevant legal and administrative mechanisms. It examines the need for conservation and notes the economic, social, cultural, and scientific benefits. Notable among these conclusions are: * The importance of maintenance and repair which are less costly in human, social, and economic terms than decay, social blight, and renewal. * The economic, cultural, and social benefits of conservation in retaining the familiar patterns of land ownership, social patterns of behavior, and the historic associations with their cultural roots as expressed through the heri- tage which are considered to be important for the city. There remains a great need for an effective listing and registration of the heri- tage. This work can only be carried out by skilled persons under the direction of the Federal Department of Archaeology (FDA) or other trained professionals. Lists of heritage property must be registered in an inventory held in a national and local archive, covering not only the most important monuments but also urban or rural xi CONSEIRVATION OF THE WALLED CITY areas to be conserved as well as historic buildings and other historical artifacts. Once lost the heritage is gone forever, and this generation bears a heavy responsibility to the next generation for conservation of the cultural heritage. The principles for conservation policy are outlined in Chapter I noting the im- portance of keeping the heritage in appropriate use such that adequate maintenance can be assured. There is a serious requirement for careful planning and management of the available financial, material and human resource. The importance of commu- nity participation is outlined, and the possible means is examined for involving the community through Association of common interests. The means of community participation and interest in the development planning process is examined. We note that laws and their application are essential, as conservation policy is of a more communal than of private interest. Administrative requirements for organization and management are outlined. Comparisons are made with Fez and Tunis. Additionally, in Chapter I the conservation processes at various levels from cen- tral to local government are described with the related functions and analyses given in some detail regarding the essential components of a project to conserve an urban area or an individual building. Constructing a brick arch (Del/i Gate) xii PXtCU-TIVE SUMMARY Conservation in Pakistan as a whole is examined in Chapter II and notes the enormous value and diversity of the heritage dating back some 5,000 years. The roles of the Government, the Federal Department of Archaeology, the State and City Development Authorities, and other organizations are described. Conservation in Lahore is described in Chapter III as it has evolved over recent years. The importance of the conservation plan is stressed and the need for the plan to be constantly updated. The responsibilities of the Lahore Development Author- ity (LDA), the Metropolitan Corporation Lahore (MCL), and the FDA require closer cooperation than is achieved as yet, but the problems are complex and theoretical solutions take time to introduce. There is a growing understanding and commit- ment to conservation as part of the Development Planning work of the LDA. Chapter TV looks at the detail experience and conclusions resulting from the projects undertaken to date. In particular the contract experience on two buildings, the Delhi Gate and the Shahi Hammam is given and referred back to the principles outlined in Chapter I. Among the conclusions reached, the following are important: * Archaeologists and historians should remain involved from the start to the finish of conservation projects. * The professions need to improve their experience of alternative working methods if the effective registration and surveying of the great number of historic buildings is to be achieved. * An archive of documentation and records of the qualities of the heritage of the heritage and works to the historic buildings must be retained by the local authority, and must be accessible for public observation if essential community participation is to be achieved. * The problems of access, decisions on future use, and the historic impor- tance of the fabric of the building to be conserved must be decided early in a project if extra costs and delays in completion are to be avoided and the adequate organization of services and finishes is to be achieved. * Planning permission and formal agreement with the FDA should be essen- tial hurdles and disciplines in any conservation project. * Systems of satisfactory funding of the conservation of privately owned buildings have to be found to suit the local political, social, economic, and fiscal conditions that prevail. The majority of historic property is privately owned, and while the government can set an example by the works it un- xiii CONSERVATION OF THE WALLED CITY dertakes to public buildings, the historic character of the city is given by the privately owned properties. Fiscal measures or grant aid tied to contribu- tions from the property owners must be devised as it found elsewhere. Financial mechanisms using non-profit making companies, associations, or trusts should be considered to handle rolling funds or other financial de- vices for generating development investment. * Projectmanagement and execution requires trained leadership and improved procedures and disciplines. These are examined in some detail relating in- formation from the experience of the two principal projects. Chapter V relates to the experience of the cities of these Tunis and Fez. These are used as very important parallels of cities in other countries which are undergoing similar conservation planning. Fez in Morocco, twinned with Lahore, is seen as be- ing of major importance as the mechanisms for funding! public participation, city and project planning and execution are an important precedent for future action in Lahore. We advise that a convention for the exchange of technical information should be arranged. The Technical Case Studies examine two principal projects in some detail so that lessons can be learned and seen in context. xiVX I NTROdUCTiON ThE HiSTORiC CONTEXT The heritage of Pakistan is particularly rich and varied, covering every century of the last 5,000 years. There are many distinct periods of cultural development: the pre- historic sites of the Indus Valley civilization, the Graeco-Buddhist sites of the Gandhara region, the Hind Shahi, the Sultanate, Moghul and British periods. They have all left important heritage sites representing valuable resources for education, leisure, tour- ism, cultural appreciation, scientific, and historical research. The historic cities are full of rich vernacular architecture illustrating traditions of craft skills, design, and urban form. These works contain the best record of past so- cial, cultural, and technical achievements. The decorative styles and detail planning i of buildings and urban areas have devel- oped slowly over the centuries. Com- merce andl craft establishment enriched the life of city dwellers. External influences were absorbed into the artistic and cul- tural traditions so that today this cultural built heritage represents the principal me- dium through which past ages may be appreciated. M4'oghul mauisoleum construction of red brick and kankar lime mortal. xx, CONSERVATION OF THE WALLED CITY There are common trends to be found in the historic urban centers of most devel- oping countries. These include the introduction of modern technologies, the resettle- ment of affluent families outside the densely populated city centers, and the immigraton of poorer rural people to the city. Powerful economic, demographic, and technologi- cal forces can quickly degrade a rich protected heritage into slum areas occupied by dwellers with little ability to care for the social and physical environment. Many historic towns in Pakistan face risks from forces of change. The heritage is at varying degrees of risk in Gujrat with its surviving walled citadel, Larkhana on the Indus River with its traditional Kashmiri-inspired timber architecture, Peshawar Old City in the Northwest Frontier Province, and many others. Urban areas are growing through natural population expansion and rural migra- tion at an unprecedented rate. The present urban population of Pakistan is esti- mated at 35 million and growing at about 4.1% per annum.' The speed of material change has increased through the introduction of new goods, new scientific pro- cesses, and new transportation systems. The people's aspirations for both the urban environment and the patterns of social behavior are being affected by new experi- ences gleaned from the greater influence of travel, television, radio, and personal contact with other cultures. This process of physical and social change imposes enormous strains on the public administration in many countries barely coping with provision of essential services let alone the control of growth and development. It is not surprising that in the quest for the new and modern, the reasons for conserving heritage can be misunderstood or forgotten. The process of change to the urban structure is a complex phenomenon requir- ing careful planning and research. It requires a sympathetic understanding of cul- tural, physical, and economic forces, and sensitive and efficient political direction by the authorities. ACTiON iN LAhORE It is in this context that the World Bank and the Pakistan Government initiated the Punjab Urban Development Project (PUDP) of which one component in Lahore is the Conservation of the Walled City, for which 0HI-K and PEPAC are the foreign and GHJTCK§lPRA' I;termtacizafal 9L. I Urbanl Ulpgra1li?g: QOptiyuis and(i Prcccdn,:cs for Palkistaii. 01DC xvi INTRODUCTION local consultancy advisers. Under PUDP, conservation work has been carried out on major monuments and historic buildings; city gates, moghul baths, schools, com- munity centers, and streetscapes. This work forms part of a program for major up- grading of the urban infrastructure. PEPAC Conservation Plan for the Walled City, commissioned by the Lahore Development Authority, identified a total of fifty projects that included the setting up of financial, legal, and administrative systems. During Phase I of the PUDP con- servation component (1986/1988), fifteen of the building projects were developed through the contract documentation stage. Projects within the Delhi Gate Catch- ment Area were treated as pilot projects for the development of appropriate conser- vation policy and techniques. They included four individual public-owned historic houses in the Delhi Gate Bazaar (2 contracts) and the restoration of the complete North and South facades of all the other properties in the Bazaar (4 contracts). The commencement of Phase II was in Autumn 1989. Phase II consisted of identification and development of a further 25 projects, as well as an implementa- tion program. The first project on site was the contract for the Delhi Gate, let in January 1990 and completed by December 31, 1990. The next project to start was the Shahi Hammam, the Moghul bathhouse, situated just inside the Delhi Gate. The contract for this project was signed on November 12, 1990 and work was com- pleted in May 1991. None of the Delhi Gate Bazaar projects were implemented, due mostly to complications in the project ownerships. ObjEcTivEs of ThE REPORT Various factors have suggested that a review of policy and practice for the conserva- tion of cultural heritage in Pakistan based on experience and progress in Lahore would be appropriate, notably: * The World Bank involvement in the conservation of the Walled City of Lahore and the success of their support carries lessons for work in other urban areas and for work in other countries. * The 1980 Lahore Urban Development and Transportation Study (LUDTS) recognized the benefit to be derived from integrating the conservation of historic fabric and the upgrading of urban infrastructure, both in the design and implementation stages. The lessons learned in Lahore should be shared. xvii CONSERVATION OF THE WALLED CITY The projects have shown the need for further training in conservation skills, for contract management and craft skills, for improved financial control procedures, and for improved funding mechanisms. The work carried out to date also shows that, under the present funding allo- catons and staffing levels, only a very small number of projects can be imple- mented out of the many for which full documentation has been prepared by the consultant team. If the benefits of the consultancy work are not to be lost, the means of carrying out a larger program of construction work must be found. Also the means must be found to reach those areas not successfully tackled, such as the repair of houses in private ownership and development of cooperation between different authorities. T he contemporary situation in Lahore is often typical of other cities of Pa- kistan, especially with regard to the political, legal and administrative frame- work. Again the experience of the Lahore work should be shared. Conservation is but one element in a complex range of social, political, eco- nomic, legal and administrative considerations. It is of benefit therefore to review the nature of the present works in the light of the national and local context. and at the detail scale of the projects themselves. This study also reviews the work in rela- tion to experience gained in urban conservation in some other countries. STRUCTURE oF ThE REPORT The report is structured as follows: * Introduction-conclusions and recommendations for necessary conserva- tion framework and action and support required for future conservation to be effective. * Chapter 1-when and why conservation is important. It looks at the present trends for integrating conservation with urban renewal and sets out a model for conservation policy and practice: * Chapter 2-the importance of the heritage and the national organization for conservation in Pakistan. xv iii INTROD UM CTION * Chapter 3-the nature of the heritage and related conservation planning policies and practices in Lahore. * Chapter 4-the observations and comments on contracts in progress or completed. * Chapter 5-comparative data is given on parallel conservation policy and practice in Tunis and Fez. * Technical Case Studies-two examples give important background to res- toration of the Delhi Gate and Shahi H-lammam. * Appendices-abbreviations and acronyms, organizations contacted, terms used, and a glossary of Urdu words. Different cultures use the same words for different meanings for instance "'conservation" in Europe and "preserva- tion' in the USA have similar meanings in certain contexts. Nothing is more inappropriate to a host community's needs than for an outsider to make proposals that are unaffordable, or technologically inappropriate, or in con- flict with local, social, moral, or political beliefs. We hope that we continue to avoid such pitfalls. Most issues of effectiveness or efficiency raised in this report are rel- evant to all cultural and political systems and we believe that the conclusions reached are especially relevant to Pakistan. It is intended that this report should be of interest to a wide audience, especially national, provincial and local government in Pakistan and countries with similar problems; nongovernment organizations; professional and contracting organiza- tions; and international lending agencies. FURThER STUdiES REQUiREd During the course of the PUDP experience many questions have arisen relating not only to the principles for conservation but also to particular local issues which should be the subject of separate study as they are beyond the scope of this report. These issues for further study include: * Planning policy and the reuse of redundant urban areas, * Planning policy and the relocation of incongruous functions such as whole- sale markets and heavy industry, * Clearing of unauthorized land uses and encroachments, xix CONSERVATION OF TEE WALLED CITY * Registration and control of land use and development with statutory sup- port, * Links between proposed improvement and the resultant social and economic benefit, * Development of political power and the promotion of community partici- pation, * Forms of financial mechanisms, fiscal incentives, and the creation of com- pany, trust and other associations for the purposes of promoting appropri- ate conservation in different sectors of the public and private economy, * Relationship between ease of transportation and popularity, * Setting up and managing a National Archive for conservation records, * Design and manage housing policies with necessary legal back up that will allow for the relocation and resettlement of people, from small family units to large groups. xx ChApTER 1. CONSERVATiON ThEORY ANd EXPERiENCE Before looking at conservation policy for Pakistan and Lahore and at the experience gained in the execution of particular projects, it is valuable to restate the conceptual base for assessing and carrying out conservation policy. This section sets out a theo- retical and practical model for the subsequent examination of policy and practice. Current advice from the Government of the United IKingdom notes: Heritage is the product of many centuries of evolution, and it will continue to evolve. Few buildings exist now in the form in which they were origi- nally conceived. Conservation allows for change as well as preservation (retention of the original fabric). There are many cases where it is right to 'conserve as found". But there are circumstances too where architectural heritage has to be able to accommodate not only changes of use but also new building nearby. It is better that old buildings are not set apart but are woven into the fabric of the living and working community. This can be done provided that the new buildings are well-designed and follow funda- mental architectural principles of scale and the proper arrangement of ma- terials and spaces and show respect for their neighbors. Conservation means breathing new life into buildings, sometimes by restoration, sometimes by sensitive development, sometimes by adaptation to a new use and always by good management.2 2 Planning Circular 8/87, Department of the Environment, UK C1NS-NLCVATICN OF T-m-E WALLED CJTY ThREATS TO ThE hERiTAqE Mani nity participation, support for cost recovery mecha- s,job traininforLDA adprofessional staff, and to arrange a study tour outside Pakistan. In addi- tion specific advice was re- quired on construction management and supervi- sion of construction projects to ensure quality and efficiency. The DeLhi Cate project was surveyed and designed in 1988. However, it had to wait until January 1990 before work could be financed and until December 1990 before work was completed. Also in 1990. the Shahi Hammam project was started and a further 24 new projects were identified throughout the city. This chapter re- lates particularly to experience gained on these two major projects. The delays in starting related to the difficulties in obtaining project funding, a lack of political support and direction, and the need for projects to be linked to World Bank support for technical assistance under the PUDP Program. COMMENTS ON ThE PROjECTS UNdERTAkEN The cnteria for selecting these first projects in Lahore were unusually diverse, and related to the normal criteria as well as to the planned impact on public opinion of the conservation projects themselves. The promotion of public awareness was seen as very important. The buildings selected by the L DA for implementation were in public or insti- tutional use. Indeed, there is no satisfactory means at present of publicly funding conservation of heritage in private ownership. The selected projects, particularly the Delhi Gate and Shahi H-lammam, are located along the principal circulation route for the east, and had been identified in the conservation planning studies. The conser- vation of these major buildings would have maximum impact on the Delhi Gate 54 THE CONSERVATION EXPERIEiNCE AT PROJECT LEVEL Bazaar running from the Delhi Gate itself up to Wazir Khan's Masjid. As detailed conservation drawings have been made for upgrading the private properties of the Delhi Gate Bazaar, so the impact of the two conservation projects was intended to encourage the conservation project along the whole bazaar. This may only be pos- sible if financial incentives of some kind are made available to private owners of the Bazaar, and policy must be coordination and agreed with the owners for a project to be successful. All the aspects of urban upgrading must be achieved for the planned environmental improvements to the Delhi Gate Bazaar and the townscape. These include electrical system improvement, placing cables underground or away from streets, installation of underground surface and soil drainage, rationalization of the refuse collection and traffic sys- tems, and improvements to the street surfacing. These upgrading works are in progress but their completion is essential to finish the work and the setting for the two major projects. The Delhi Gate was being used for a school, storage for unau- thorized commerce, and residential accommodation for the police. The Shahi Hammam was being used for storage, residential squat- ter accommodation, schools, clinic and councilor's office. The consultant team was established and consisted of architec- tural and conservation specialists, structural engineers, archaeolo- gists, historians, and specialist conservators, with cost advice being given by the LDA. Although excellent information relations exist with the Regional Office of the Federal Department of Archaeology (FDA), there was insuffi- cient formal liaison between the local authorities and the FDA. But while the C) latter are legally responsible for ensur- ing appropriate conservation, their in- fluence on the projects was lacking due to no formal mechanisms for project ap- The historic Civic Route provals being established or used. from Delhi Gate to There is a need to establish a central f Wazir Khan ITcosque has great signiificance to archive as part of the FDA office in Lahore 9 the heritage of Lahore 55 CCNSRVP\ATION OF THE WALLED CI-Y Equally an archive specifically related to conservation and planning matters within the LDA should be properly used and accessible. There is room for improving and developing the conservation and planning pro- cesses of the city, particularly the following: * Community understanding and participation in the conservation proposals and plans will permit the promotion of policy and the involvement of the public. Without public involvement the reduction in population density, the improvements to industry locations and the enhancement and conser- vation of streetscapes and private properties will not be so simple. * Mechanisms for involving private funding in the conservation process must be established perhaps by limited grant aid or fiscal inducements. * The improvement to the quality of life requires the relocation of popula- tion to reduce density and can only be achieved in the context of a broad development planning policy for the city. l The current upgrading of city infrastructure services increases people's aware- ness of the benefits to be obtained from improved living conditions. Con- servation can only be effective in the context of general planning improvements. * The present intense industrial and commercial occupation causes problems of access efficiency and congestion. Some reduction in density through the relocation of industries will be necessary. * The conservation plan started by PEPAC in the 1980s is of great importance to the Walled City and must continually be updated, expanded and inte- grated into the city planning system. This will only be possible if adequate funding and staff are found. * Acceptable reuse of historic property now requires a wide appreciation of the sensitivity to change of the historic fabric and the careful budgeting of avail- able financial, material and human resource through efficient management. In reviewing the work and projects the following factors (also discussed in chapter 1) became apparent: Historic hiddings. The importance of the surveying of historic buildings, the re- taining of survey records and the involvement of historians and archaeologists or specialist architects in the projects of conservation are only just being fully appreci- 56 THE CONSERVATCON EXPERIENCE AT PROJECT LEVEIL ated by the administration. The organization and management is being developed but most not lose momentum. The present leadership has gained an important ex- perience that is vital to the future of this great city. Physical surveys. There is much scope for wider education in architectural and technical schools of the disciplines and methods of surveying. Much effort was re- quired to convey to local staff the logic and methods of surveying available. The professional and technical institutes should assist in promoting good practice on these and other matters. Ownership, present & future use, rights of access and legal constraints. Many buildings have existing users, and in Lahore there are many illegal encroachments. Eviction requires superior authority, and the removal of encroachments, was not easily nego- tiated. In various parts of the city a variety of measures have been adopted for the removal of encroachments, from negotiation and relocation, to the bulldozer. En- croachments surrounded both the Delhi Gate and Shahi Hammam and all the above factors of eviction, removal of encroachments, relocation of tenants and services and assessment of the appropriateness of existing and continuing uses, required the most careful consideration. Delays in taking appropriate action on these matters caused corresponding delays in design and contract work on site. There is scope for greater care and awareness of the available options in plan- ning the integration of services into the historic fabric. It is only too easy to damage this heritage by the use of inappropriate services, ugly fluorescent lights supplied by surface mounted trunking, and badly located switch socket outlets. Services have to be renewable without further damage to the historic fabric. This requires a real ap- preciation of the sensitivity of the building fabric and of the available servicing op- tions. Excellent efforts were made to achieve appropriate servicing of these projects. Approvalsand planningopermission. Itis universally accepted that the heritage, whether in public or private ownership, is of national importance and caries and influence beyond the responsibilities of the property owner. In most countries ownership of properties requires the owner to abide by specific restrictions on work on the prop- erties that can be undertaken with or without authority. Pakistani law does support this philosophy, but it is not applied either by adequate inspection by the Depart- ment of Archaeology or at the level of control over construction works by the City Authorities. (the MCL or the LDA). Such Authorities, as has been explained earlier, cannot carry out their duties effectively without adequate manpower, financial re- source, and commitment from the government. 57 CONSERVATIO\N Of THE %V, 'LLED C.TY T he legal mechanism is available however, along with the conservation plan for the Walled City. to identify, register and classify which buildings are important. The conservation plan has successfully surveyed and identified a greater number of iro- portant properties, making available base information to the city authorities for their administration to us. Experience on the conservation projects undertaken on tne Walied City to date is that consultation between the local office of the Federal Department of Archaeol- ogy and various City Authorities in adequate on conservation matters for the terms of the national and local conservation legislation to be fulfilled. It is inevitable that decisions on reuse. planning control, conservation of the heritage, and the expansion of private interests will be uncontrolled. There is exten- sive decayed fabric, law which is not obeyed, and a lack of trained civil servants woo can apply the law and give advice and guidance. But there is a growing admin- istration at Lahore and the decisions by the senior officers on questions arising on the PUDP project have been taken with commendable reason and clarity. We be- lieve it is essential that such administrative clarity should spread to the care of all buildings in the Walled City. Dc.vPil dce roof w zvo ci llrt.LLi Cticiz. The lack of adequate access and hence survey- ing on the Delhi Cate and the compressed construction program on the Shahi 1ammam as a result of pressure from politicians, led to many decisions having to be made site. While this is not unusual in conservation work it put special pressure on the contract for the control of costs and completing the agreed content of the work. T he procedures for handling paper work needed to be more disciplined and the consequences for mocifications to the cost budget needed to be given to the Project Manager and also the archaeo'ogist, or historian, and the design architects as quickly as possible. Such disciphned paperwcrk and monitoring was advised by the con- sultants but rejected by the site staff. In consequence both time and cost budgets were exceeded on the Delhi Gate project. Improved control was achieved however on the Shahi Hammam. During the post-contract phase. the contractors had difficulty programming their works. The sequence of operations that was apprcpriate to conservation work and the necessary p-otection to the fabric below while conservation work proceeds above was not readily appreciatec by the contractor. The complexity of the conservation works needed recognition of the additiona' time and effort required in the manage- ment arnd programming. 58 THE CON-SERVATION EXPERIENCE A- PROTECT LEVEL Quality control. The consultants were able to offer advice to the client throughout the works. But their site attendance was inadequately requested. Quality was there- fore at risk because the significance of pre-contract decisions and the sensitivity of the fabric were not always taken into account. In conservation projects, consider- able awareness of the design options must be available if appropriate solutions are to be found in the direction of works and variations required on site. The program- ming of consultant effort could neither afford, nor allowed sufficient site visits. Financial control. As noted above the Delhi Gate contract overran budget costs because the squatters' encroachments and tenants could not be removed quickly enough, and pre-contract documentation was carried out with insufficient survey. During the works, evidence for missing elements were discovered on site. The ap- propriate conservation and restoration required the construction of structural work. These factors contribute largely to the quite serious cost overrun (45% over the contract sum for the Delhi Gate). While it is not unusual for costs to vary consider- ably on historic building contracts, it illustrates clearly the importance of skilled investigation and such prior to finalizing contract documentation: Structural repairs. Assessment of the strength of the building by the structural engineer was of great importance when deciding the appropriateness of new use. Buildings can suffer setdements in foundations, thermal movements in the super- structure, decay of materials and damage through natural forces. Deformation of arches that are not properly restrained had occurred particularly in the Delhi Gate where the circular drain to the wall gardens passes next to the building. Wherever possible structural cracks that may not have been serious, resulting from earthquakes and minor ground movements, and were not continuing to move, were grouted or stitched according to the severity of the crack. The appropriateness of such repairs could only be assessed by applying tell-tale signs and other indicators to show whether movement was continuing. Assessment of structural movements is job for an expe- rienced conservation architect and structural engineer, and must proceed for at least one year to establish a safe envelope of movement. Water ingress through the roof of the Delhi Gate had caused failure of roof beams and these had to be replaced or repaired. Damage to timber by water ingress and by insect attack occurred mainly at the hidden bearing points within the walls. Insect attack was often apparent in visible timbers but could be more easily treated. Assessment of this decay required drilling to expose frass or other such insect indi- cators, and to assess the reduction in structural strength of timber members. Treat- 59 CONSERVATTO\ OF THE WA_LLEL CITY Beatitig Kanh/aCr liiwC (SIliali HafIii1lCa2Z). ment against insect attack with modern materials was thought to be effective on these projects. FiSishl-Applgving n'tv' pZlaXster iL?vers .,f baikar lirze_ The new kankar-lime oni roof- vaults au the Shahi Hammam dried too quickly and showed severe cracks on the surface. The kankar was not burnt properlv and slaking was carried out too quickly. The reasons for this lay in the contractor's lack of experience and inability to follow specifications laid down in the contract documents, and lack of supervision by project management or its representative. Adjustment was required to the mixture of lime. kankar, and sand in order to achieve a cornpatible mix with tlhe backing materials. These adjustments had to be made by the consultants. As traditional rmaterials were being -used, it was considered essential that tradi- tional methods of workmanship were also employed. In this case the kankar-limne was also applied to the wall using traditional techniques Fin?ish-Reponintin,ic /rickiY'xork aon,l mulZIts. Difficulty was experienced in achieving the appropriate quality of worl