Draft Framework on Management for Heritage Sites and Monuments of Bangladesh

Draft Framework on MANAGEMENT FOR HERITAGE SITES AND MONUMENTS OF BANGLADESH Emphasising Cultural World Heritage Sites at Paharpur and Bagerhat

Draft Framework on Management for Heritage Sites and Monuments of Bangladesh Emphasising Cultural World Heritage Sites at Paharpur and Bagerhat This draft framework has been prepared and published by the ‘Training and Capacity Building for Long-term Management and Best Practice Conservation for the Preservation of Cultural Heritage Sites and World Heritage Properties in Bangladesh’ project jointly funded by the Goverment of People’s Republic of Bangladesh and UNESCO World Heritage Center Publication Year 2023 Copyright Department of Archaeology, Government of the People’s Republic of Bangladesh Compilation and Editorial Team Heritage Cell, Department of Archaeology UNESCO Dhaka Office Cover Design Md Khairul Bashar Swapan

PREFACE The Department of Archaeology under the Ministry of Cultural decision-making concerning the conservation and management Affairs is responsible for the safeguarding of the cultural heritage of cultural heritage sites and the implementation of international of Bangladesh. conservation and management standards as articulated in the World Heritage Convention. The fundamental concepts of conservation practices and the implementation of the World Heritage Convention is crucial to After a series of meetings and workshops this Draft Framework on ensure the future preservation of the World Heritage properties Management for Heritage Sites and Monuments of Bangladesh was and cultural heritage in Bangladesh. However, the capacity prepared. The heritage experts, stakeholders and professionals building aspects for officers, staffs and relevant stakeholders have who were involved in preparing this draft framework expecting not been addressed adequately and comprehensively as yet. that it will be adopted by the government which eventually will open a new window in heritage management in Bangladesh. We Therefore, the DoA is concerned about upscaling and enhancing hope this draft framework will help protecting the heritage sites its officers, staffs and stakeholder’s capacity, in conservation and of Bangladesh more effectively. management related matters for the preservation of cultural heritage sites and World Heritage properties in Bangladesh, which Chandan Kumar Dey has a direct bearing on the technical aspects of conservation of Director General (Additional Secretary) cultural heritage sites in Bangladesh. Department of Archaeology For those purpose a project was initiated by the DoA with funding from the World Heritage Center and the Government of Bangladesh naming ‘Training and Capacity Building for Long-term Management and Best Practice Conservation for the Preservation of Cultural Heritage Sites and World Heritage Properties in Bangladesh’. The overall objective of the proposed project is to provide heritage managers and national authorities with a sound basis for the 1

ACKNOWLEDGEMENTS ACRONYMS We would like to express our sincere gratitude and appreciation ADC Additional Deputy Commissioner to all those who have contributed to the successful completion of ASI Archaeological Survey of India the Project. Development of this framework would not have been BCSIR Bangladesh Council of Scientific and Industrial possible without the hard work, dedication, and collaboration of Research many individuals and organizations. BD Bangladesh BNCU Bangladesh National Commission for UNESCO We are grateful to the officials of Ministry of Cultural Affairs, BPC Bangladesh Parjatan Corporation Government of the People’s Republic of Bangladesh for their BTB Bangladesh Tourism Board administrative support and guidance which were crucial in ensuring BUET Bangladesh University of Engineering and Technology that the project met its objectives. We would like to thank Ms. CAG Comptroller and Auditor General Susan Vize, Officer-in Charge and the officials of UNESCO Dhaka DG Director General for their unwavering support and trust in our team. DoA Department of Archaeology ERD Economic Relations Division We are also thankful to the consultants, experts, stakeholders and GIS Geographic Information System participants who provided valuable inputs, feedbacks, and resources GSB Geological Survey of Bangladesh to the project. Their support and collaboration were essential in IAB Institute of Architects Bangladesh achieving the project’s objectives and ensuring its sustainability. ICOM International Council of Museums ICOMOS International Council on Monuments and Sites Once again, we are grateful to everyone who contributed to the MoCA Ministry of Cultural Affairs Project’s successful completion. Their efforts and commitments MoLWA Ministry of Liberation War Affairs have made a significant impact on the development of this draft MoPA Ministry of Public Administration framework. MoRA Ministry of Religious Affairs NDC Nezarat Deputy Collector We would also like to thank Former Director Generals (Additional NGO Non-governement Organization Secretary) of the Department of Archaeology Mr Md. Hannan OUV Outstanding Universal Value Mia and Mr Ratan Chandra Pandit and former Head of office and PWD Public Works Department UNESCO Representative to Bangladesh Ms. Beatrice Kaldun for RUET Rajshahi University of Engineering & Technology initiating the project. SATIDP South Asian Tourism and Infratructure Development Project UNESCO United Nations Educational, Scientific and Cultural Organization UNO Upazila Nirbahi Officer WHC World Heritage Center 2



Management Framework is required for Heritage Sites and use of Archaeological Officers and others entrusted with the care Monuments especially for cultural World Heritage Sites. It is of Ancient Monuments, 1923 and Archaeological Works Code, also necessary for any new sites proposed for inscription in the 1938. However, the time has come for updating the provisions and UNESCO World Heritage List. This framework represents an procedures. The reasons are as follows: Action Plan and Responsibility Matrix for implementing enhanced Protection, Preservation and Management of heritage sites and ■ To safeguard the OUV, authenticity and integrity of the heritage monuments in Bangladesh. sites and preparation of nomination dossier for World Heritage inscription, framework on management is very essential tool. Currently there are two cultural heritage sites inscribed in the List of World Heritage Sites- i) Ruins of Buddhist Vihara at Paharpur ■ To effectively manage the existing world heritage sites ii) Historic Mosque City of Bagerhat. according to the UNESCO Operational Guidelines, Protection, Preservation and Management Framework is also an important At present, 7 proposals are included in the Tentative List- tool. 1) Archaeological Sites on the Deltaic Landscape of Bangladesh ■ The dedicated legislation which is supposed to protect heritage 2) Archaeological sites of Lalmai-Mainamati sites does not work as intended and requires amendment. 3) Cultural Landscape of Mahasthan and Karatoya River There has been a failure to utilise more recent planning and 4) Mughal Mosques in Bangladesh environmental legislation which might support the protection 5) Mughal and Colonial Temples of Bangladesh of heritage sites. Inter-ministerial and academic coordination 6) The Architectural Works of Muzharul Islam: an Outstanding in protecting cultural sites should be institutionalised. Contribution to the Modern Movement in South Asia ■ The Government would like to achieve further World Heritage 7) Mughal Forts on Fluvial Terrains in Dhaka inscriptions, but it’s challenging without enhanced safeguarding and management plan for heritage sites. The DoA is an old-established organisation, founded in 1861. It has many tested procedures and tools for safeguarding the cultural ■ Many heritage sites are owned by the government, but not heritage sites of Bangladesh. Sites are protected by the Antiquities controlled by the DoA and these sites are facing continual Act, 1968 (previously the Ancient Monuments Preservation Act, damage. A number of privately owned key heritage sites 1904). Currently there are 538 protected sites and monuments need to be brought under the guardianship of DoA and local under the DoA. Preservation, conservation and excavations by administration. DoA is guided by the Conservation Manual: a handbook for the ■ Archaeological excavation procedures formally introduced by 4

Sir Mortimer Wheeler as DG of the ASI (1944 – 1947) are still in Following a series of meetings and workshops, this Draft place and the advances in excavation techniques developed from Framework on Management for Bangladesh’s Heritage Sites and the 1960s onwards have not been generally institutionalised. Monuments was developed. The heritage experts, stakeholders, Scientific methods of non-invasive archaeological survey have and professionals involved in developing this draft framework hope not been used by the DoA, although they have become standard that it will be adopted by the government, opening up a new era in tools in the rest of the world. Site-specific research programmes Bangladesh’s heritage management. need to be adopted. A number of Heritage Experts, Stakeholders, Professionals and ■ Implementation of standard and methodical conservation work Intitutes were involved in preparing this framework. Here is the is a major challenge due to the insufficient planning, budget list (not according to seniority) of participants and representatives and coordination among the Professionals, Archaeologists and involved throughout the process- Conservators. Md. Abul Monsur, Secretary, MoCA Md Amiruzzaman, Deputy Director (Antiquities), DoA Md Khairul Bashar Swapan, Assistant Director (Current Chandan Kumar Dey, DG, DoA Rakhi Roy, Regional Director, DoA Charge), DoA Ratan Chandra Pandit, Former DG, DoA Afroza Khan Mita, Regional Director, DoA Muhammad Jayed, Custodian, DoA Ataur Rahman, Joint Secretary, MoCA Dr. Mst Naheed Sultana, Regional Director, DoA Rajia Sultana, Custodian, DoA Subrata Bhowmik, Joint Secretary, MoCA Liaquat Ali, Archaeological Chemist, DoA Muhammad Fazlul Karim, Custodian, DoA Nafriza Shayma, Joint Secretary, MoCA Lovely Yeasmin, Deputy Director, DoA Md. Shahin Alam, Field Officer, DoA Dr. Abu Sayeed M Ahmed, Conservation Architect A K M Syfur Rahman, Regional Director, DoA Firoz Ahmed, Former Assistant Engineer, DoA Dr. T M J Nilan Cooray, Conservation Architect, Kazi Tanzila Jahan,Programme Officer, BNCU Al Amin, Custodian, DoA Sri Lanka Ferdous Farhana Huq, Assistant Professor, RUET Md. Khalilur Rahman Talukder, Assistant Engineer, DoA Professor Bulbul Ahmed, Heritage Expert Mohammad Tahajibul Hossain, Assistant Professor, BUET Md Murad Hossain, Assistant Engineer, DoA Dr. Sharif Shams Imon, Heritage Expert Imamur Hossain, Lecturer, Sonargaon University Md. Eleus Hosen, Estimator, DoA Mainur Rahim, Deputy Director (Admin), DoA Md. Mujibur Rahman, Assistant Secretary, MoCA Biddut Chandra Das, Sub-Assistant Engineer, DoA Kazi Nurul Islam, Deputy Secretary, MoCA Abdul Rahim, Herbarium Officer, Jahangirnagar University Shah Mohammad Rokonuzzaman, Conservation Chemist, Mst. Susmita Islam, Deputy Secretary, MoCA Mohidul Islam, Assistant Director, DoA Bangladesh National Museum Muhammad Ibrahim, ADC, Naogaon Md. Golam Fardaush, Assistant Director, DoA Arch. Muhtadin Iqbal, Member, IAB Mst. Alpana Yeasmin, UNO, Badalgachi Halima Afroj, Assistant Director, DoA Fahmida Nusrat, Associate Member, ICOMOS BD Mohammed Muzaherul Hoque, NDC, Bagerhat Tania Sultana, Assistant Director, DoA Fatiha Polin, Member, ICOMOS BD Md. Mosharraf Hossain, Former Regional Khandokar Mahfuz Alam, Assistant Architect, DoA Lisun Asib Khan, Member, Bangladesh Institute of Director, DoA Planners 5

The Action Plan and Responsibility Matrix presented below includes actions required to protect, preserve and manage the heritage sites Sl. No. Problems & Targets Action to achieve the Target Lead Ministry/ Associate Ministry/ Organization Organization 1. Management Plan 1.1 Proper management plan according a) The management plan by SATIDP for Ruins MoCA & DoA BNCU, UNESCO Dhaka, ICOMOS to international standards is needed of the Buddhist Vihara at Paharpur and the BD, University faculties and to effectively manage the heritage Historic Mosque City of Bagerhat needed Researchers sites to be revised/ approved by the DoA, MoCA For example- lack of proper practice and submitted to the UNESCO World on property zone and buffer zone Heritage Centre identification and mapping b) A comprehensive management plan for the national heritage needs to be formulated 2. World Cultural Heritage 2.1 The current Tentative List dates a) Updated Tentative List is already MoCA & DoA BNCU, UNESCO Permanent to 1999 and requires revision and submitted to WHC. Delegate of Bangladesh at Paris, updating UNESCO Dhaka Office b) The List should be updated regularly 2.2 More sites should be inscribed as Nomination Dossier should be prepared for MoCA & DoA BNCU, UNESCO Permanent future World Heritage Nominations Delegate of Bangladesh at World Heritage Paris, UNESCO Dhaka Office, ICOMOS BD, University faculties, Researchers and Stakeholder 2.3 Lack of awareness and capacity for A seperate wing like Heritage Cell can MoCA & DoA MoPA, Finance Division preparing the periodic report and be added in organogram through legal framework to monitor and manage the world state of conservation report for WHC heritage issues 3. Legal protection 3.1 The Antiquities Act, 1968 needs to Draft Antiquities Act 2023 has already been MoCA & DoA Legislative and Parliamentary be updated and revised including sent to MoCA for further actions Affairs Division specific articles for the identification of property zone and buffer zone 6

Sl. No. Problems & Targets Action to achieve the Target Lead Ministry/ Associate Ministry/ Organization Organization 3.2 There is no Law or National Contemporary Cultural Heritage MoCA MoLWA, Legislative and Authority for safeguarding Preservation Act needs to be enacted and Parliamentary Affairs Division Intangible Heritage and a separate authority and research institute Contemporary Historical Heritage needs to be established with the emphasis on memorial sites related to freedom movement and For example- International Mother Language liberation war Institute 3.3 Conservation Manual, 1922 needs to Translation to Bengali is already prepared. It MoCA & DoA Department of Architecture, be updated and revised needs be updated and revised PWD, University faculty, researchers, ICOMOS BD, IAB 3.4 The Antiquities Preservation Rules, Antiquities Preservation Rules 1986 needs to MoCA & DoA Department of Architecture, 1986 needs to be updated and revised be updated and revised PWD, University faculty, researchers, ICOMOS BD, IAB 3.5 Archaeological Works Code, 1938 Archaeological Works Code 1938 needs to be MoCA & DoA Department of Labour, Finance updated and revised Division, Department of needs to be updated and revised Architecture, PWD, University faculty, researchers, ICOMOS BD, IAB 3.6 There is no National Conservation A zero draft for conservation policy is already MoCA & DoA Department of Architecture, prepared. It needs to be finalized. PWD, University faculty, Policy and Strategy researchers, UNESCO Dhaka, ICOMOS BD, IAB 3.7 Lack of policy for proper immovable After passing the Antiquities Act a separate MoCA & DoA MoPA, Ministry of Land antiquities protection declaration rule under the act for Immovable Antiquities Protection Declaration needs to be formulated process 3.8 According to article 8.2 of the After passing the Antiquities Act a separate MoCA & DoA Finance Division, CAG Antiquities Act, 1968 there is a scope rule under the act for Heritage Fund and of Heritage Fund, but there are no Management needs to be formulated operational guidelines 7

Sl. No. Problems & Targets Action to achieve the Target Lead Ministry/ Associate Ministry/ Organization Organization 3.9 Regular updating of the Organogram, Though it’s a regular process but it needs to MoCA & DoA MoPA, Finance Division, Cabinet be more frequent Division rules and Charter of Duties 3.10 According to article 25 of the After passing the Antiquities Act a separate MoCA & DoA University faculty, researchers, Antiquities Act, 1968 there is direction guideline under the act for Excavation and UNESCO Dhaka Office of Excavation and Exploration but Exploration needs to be formulated there are no specific guidelines 3.11 No protective boundaries for the After passing the Antiquities Act a separate MoCA & DoA Cabinet Division, MoPA, property areas and buffer zones have rule under the definition of property zone Ministry of Land, University and buffer zone needs to be formulated faculty, researchers, UNESCO been defined or gazetted Dhaka Office 4. Coordination 4.1 Lack of inter-ministerial and Inter-ministerial and academic coordination MoCA DoA academic coordination should be institutionalised an effective instrument in the protection of heritage 4.2 Lack of coordination between Stakeholder meeting needs to be arranged DoA Cabinet Division, public DoA and local community and regularly representatives administration 5. Ownership 5.1 Many important heritage properties Important heritage sites need to be MoCA & DoA Cabinet Division, Ministry of and land remain in government and transferred to DoA custody Land, MoPA, MoRA, PWD public ownership, but not in the custody of DoA MoCA, DoA Cabinet Division 5.2 Expropriation of additional land or DoA needs to prepare a phased Action Plan guardianship has not proceeded to for expropriations or guardianship plan 6. Museum Management 6.1 Insufficient public attraction facilities Visitor facilities need to be improved like DoA MoCA, Finance Division, BTB, sitting arrangement, safe water, sanitation, Regional or Custodian Offices of parking, breast feeding corner etc. DoA 8

Sl. No. Problems & Targets Action to achieve the Target Lead Ministry/ Associate Ministry/ Organization Organization 6.2 Lack of modern museum display Modern display techniques should be applied DoA MoCA, MoPA, Finance Division, and the thematic display items need to change Regional or Custodian Offices of regularly. Display Officer post should be DoA, BTB created in organogram for every museum 6.3 Lack of proper museum security and Boundary wall, centralized security system MoCA, DoA Cabinet Division, MoPA, Finance proper security personnel needs to be adopted and more skilled Division, PWD personnel should be engaged. Secutiry Officer post should be created in organogram for every museum and regional offices 7. Research 7.1 Non-invasive field survey utilising Archaeological geophysics should be MoCA, DoA Finance Division, GSB, university archaeological geophysics has not institutionalised as a standard survey faculty, researchers yet become standard in Bangladesh technique 7.2 There is no cartography lab and Cartography lab needs to be established and MoCA, DoA MoPA, Finance Division, GSB expert personnel for regularly expert personnel need to be engaged updating GIS database 7.3 There is no Central Research and A Research institute in the Archaeology Head MoCA, DoA MoPA, Finance Division, PWD, Training Institute under DoA office needs to be established Department of Architecture, University faculty, researchers, ICOMOS BD, IAB 7.4 a) The central laboratory of DoA Central laboratory of DoA needs to be MoCA, DoA MoPA, Finance Division, BCSIR, has insufficient modern equipments modernized with modern equipment and Bangladesh National Museum, and skilled personnel skilled personnel University faculty, researchers b) There is no regional laboratory Region and field-based laboratories for the MoCA, DoA Cabinet Disivion, university and field-based laboratory under testing and chemical conservation of movable faculty, researchers DoA and immovable antiquities needs to be established c) There is no facility and expertise A C-14 dating laboratory needs to be MoCA, DoA Ministry of Science, ERD, BAEC, for absolute dating of antiquities established with trained personnel Public Universities 9

Sl. No. Problems & Targets Action to achieve the Target Lead Ministry/ Associate Ministry/ Organization Organization 8. Conservation practice 8.1 DoA needs to adopt best practice in DoA already started following the modern DoA Regional or Custodian Offices of conservation procedures conservation procedures but it needs to be DoA institutionalised 8.2 International Manuals and charters DoA already started to follow International DoA Regional or Custodian Offices of are not properly followed by DoA in Manuals and charters but it needs to be DoA conservation works institutionalised 9. Community Participation 9.1 DoA sites are managed with less Participatory management should be DoA Cabinet Division, Regional or involvement of community. developed, e.g. through local craft and skills Custodian Offices of DoA, and promotion. An effective outreach programme NGOs should be developed and increase the community participation to feel ownership of heritage 9.2 Lack of focus on archaeological The tourism of both the site itself and MoCA, DoA Cabinet Division, BTB, BPC, tourism the hinterland needs to be promoted in Regional or Custodian Offices of partnership with local stakeholders, BTB and DoA and NGOs BPC 10. Monitoring 10.1 Heritage sites are deteriorating A system of regular monitoring should be MoCA, DoA MoPA, Finance Division, because of lack of monitoring implemented with more skilled manpower Regional or Custodian Offices of within the organogram. Heritage cell which DoA is mentioned in 2.3 can be established and responsible 10.2 Waterlogging is a major challenge in Effective drainage system needs to be MoCA, DoA Cabinet Division, Finance heritage sites specially in Buddhist developed and further action needs to be Division Bangladesh Water Vihara at Paharpur assessed for established systems Development Board 10.3 There is no skilled heritage guide to Skilled guides need to be recruited. Graduate MoCA, DoA MoPA, Finance Division interpret the heritage sites interns, senior citizens and community representatives should be engaged as guide 10

Some photographs of workshops, meetings and field works to prepare the Draft Framework 11

Some photographs of workshops, meetings and field works to prepare the Draft Framework 12

Some photographs of workshops, meetings and field works to prepare the Draft Framework 13

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