Fort and Shalamar Gardens in Lahore

• Housing; Land conversion (Encroachments and urban pressure)
• Management systems/management plan (Inadequate management mechanisms; lack of definition of boundaries of the Lahore Fort and Shalamar Gardens)
• Legal framework (Incomplete legislation)
• Financial resources (Lack of sufficient financial resources to implement management mechanisms)
• Underground transport infrastructure
• Ground transport infrastructure (Development of the Orange Line Metro - aerial portion of the line)
• Demolition of two of the tanks and partial demolition of a third tank of the hydraulic works of the Shalamar Gardens (issue resolved)

Adopted, see https://whc.unesco.org/en/decisions/1290

Adopted, see https://whc.unesco.org/en/decisions/1290

Total amount provided to the property: USD 975,000 from the UNESCO/Norway Funds-in-Trust, the UNESCO/Japan Funds-in-Trust, the Getty Foundation, and the Embassy of the United States of America in Pakistan

On 1 February 2022, the State Party submitted a report on the state of conservation of the property, a summary of which is available at https://whc.unesco.org/en/list/171/documents/. The report provides the following information in response to previous decisions of the World Heritage Committee:

• The State Party indicates that it is committed to working in close cooperation with, and taking advice from, the World Heritage Centre and Advisory Bodies and to implementing the recommendations of the 2018 joint World Heritage Centre/ICOMOS Reactive Monitoring mission, as far as possible. To this end, the Directorate General of Archaeology established a framework with an approved budget. A consultant has prepared eight feasibility studies: Traffic, Environmental, Socio-Economic Baseline, Buffer Zone Management, Conservation, Visitor Management, Stakeholder Engagement and Compliance. The actions arising from these studies will be implemented following consultation with the World Heritage Centre and Advisory Bodies;
• Works undertaken on the Shalamar Gardens include the conservation and preservation of the perimeter wall, the Moor Craft building, stairways, ramps and walkways, as well as works on the Mughal hydraulic system and other drainage systems, the provision of public facilities and illumination, and the revival of horticulture works. The State Party has planted trees to form a natural ‘mask’ for the newly constructed Orange Metro Line, and the operation of the metro train has been modified to address vibration and noise;
• The State Party provided summary information about works undertaken at the Lahore Fort on Diwan-e-Khas, Shah Jahani Khawabgah, Paen Bagh Quadrangle, Khilwat Khana, Laal Burj, Kala Burj, Moti Masjid and Makatib Khana, Arz Gah, Akbari Hammam, Alamgiri Gate, Loh Mandir, Diwan-e-Aam, Daulat Khana Khas-o-Aam, Haveli Kharak Singh and adaptive re-use of the corner bastion of Lahore Fort. The State Party highlights restoration works to the Picture Wall, noting that works to the western façade are already completed, but that conservation activities at the northern segment of the wall are in progress and are scheduled to be completed in June 2023. Completed conservation works at the Royal Kitchen of the Fort, and its adaptive re-use as a multifunctional space, were approved by the Government of Punjab and informed by appropriate investigations and documentation;
• The ‘Lahore Fort Precincts and Buffer Zone Master Plan’ was submitted to the World Heritage Centre. This Plan considers the settings of the property components and is mindful of potential boundary modification to include Badshahi Masjid, the Hazoori Bagh and the Sikh Funerary complex within the property boundaries;
• The State Party commits to submitting proposed future projects at both components of the property to the World Heritage Centre for review by the Advisory Bodies in accordance with the Operational Guidelines.

In May 2022, the State Party submitted to the World Heritage Centre an ‘Inception Report’ on the Consultancy Services for studies to implement the recommendations of the 2018 World Heritage Centre/ICOMOS Reactive Monitoring mission for Shalamar Gardens.

On 22 February 2022, following a Technical Review by ICOMOS, the State Party submitted a revised, final version of ‘Lahore Fort Precincts and Buffer Zone Master Plan’ to the World Heritage Centre, including a detailed matrix of the heritage values of components of the property.

The State Party has reported that it will address the Committee’s previous decisions and implement the recommendations of the 2018 Reactive Monitoring mission. However, despite these assurances, it has regrettably not engaged actively with the World Heritage Centre nor ICOMOS, despite the provisions of Paragraph 172 of the Operational Guidelines and the Committee’s specific previous requests. Neither the state of conservation report nor other documents submitted by the State Party, nor the presentations made by the State Party during a meeting with the World Heritage Centre and ICOMOS in March 2022 demonstrate actual delivery of outcomes on the ground. The ‘Inception Report’ submitted in May 2022 provides eight ‘feasibility studies’, but as yet there is no progress reported with the delivery of these projects.

Despite the absence of active consultation with World Heritage Centre and the Advisory Bodies, some projects have proceeded. While the completed projects at the Shalamar Gardens and Lahore Fort, listed above, appear to include both routine conservation activities and major new initiatives, none of the works were preceded by comprehensive referral and review by the World Heritage Centre and the Advisory Bodies, contrary to the specific requests made by the Committee in Decision 44 COM 7B.34. Nevertheless, it is recognised that some conservation works are necessary, and the State Party reports that these were informed by appropriate investigations and documentation. The conservation of the western façade of the Picture Wall is a positive step, yet some actions, such as the adaptive re-use of the corner bastion or the conversion of the Royal Kitchen of the Fort for use as a multifunctional space, may not be consistent with the protection of attributes that support the Outstanding Universal Value (OUV) of the property. The works on the Royal Kitchen proceeded despite the Committee’s request that the State Party submit technical proposals ahead of time.

Although the State Party commits to submitting all proposed projects to the World Heritage Centre for review by the Advisory Bodies, in accordance with the Operational Guidelines, this has not actually occurred to date. Tasks such as the architectural survey of Lahore Fort by electronic means are needed to inform future conservation/rehabilitation work. Other recommended conservation work, such as restoration work on the courtyard, outdoor terrace and surrounding buildings of Khilwat Khana, is yet to occur. No specific information has been provided about one of the most important monuments of the Fort, the Sheesh Mahal, at which the 2018 mission identified serious conservation problems.

The Committee may wish to note the inception report, but express concern on overall lack of progress in implementing the full set of recommendations of the 2018 mission and other projects proceeding without review potentially threatens the OUV of the property. It would be appropriate for the Committee to request a further Reactive Monitoring mission as soon as possible to assess the state of conservation of the property, evaluate the effect of recent works on its OUV, study possible proposals for technical interventions in the future, as well as the actual progress in achieving the recommendations of the 2018 mission, and provide appropriate advice to the State Party and to the Committee. In the meantime, the State Party should again be reminded of its obligations under Paragraph 172 of the Operational Guidelines requested to avoid actions or decisions that may affect the OUV of the property and be difficult to reverse, and to complete Heritage Impact Assessments (HIAs), in accordance with the new Guidance for Impact Assessment in a World Heritage Context.

The February 2023 ICOMOS Technical Review of the ‘Lahore Fort Precincts and Buffer Zone Master Plan’ concluded that it provides clear guidelines for the forthcoming interventions on the monument and its surrounding area, but nevertheless recommended changes prior to finalisation and implementation. The Technical Review also recommended that the State Party be invited to submit revised property and buffer zone proposals. The study relating to a proposed boundary modification for inclusion of Badshahi Masjid, the Hazoori Bagh and the Sikh Funerary complex within the property boundaries and for an expanded buffer zone should be prepared as a separate document, which should also consider the previously contemplated potential adjustments to the buffer zone of the Shalamar Gardens. This separate study should be submitted to the World Heritage Centre for review by the Advisory Bodies, and any resulting proposal for a boundary modification should follow the processes outlined in paragraphs 163 to 165 of the Operational Guidelines.