Asia and the Pacific Regional meeting on the "Heritage and Metropolis in Asia and the Pacific” May 30 to June 1, 2007, Seoul, Korea

MANAGING CHANGE IN URBAN DEVELOPMENT THROUGH

HERITAGE CONSERVATION

Dadan Nugraha

INTRODUCTION A man without history is a man without a soul. This is also true for a city; its long

path of history can be traced through the riches of its architectural heritage that reflect

the experiences and culture of its people.

Civilization can be traced not only through documented history and the written

records of a people’s experiences and activities. Besides these there are other kinds of

deposited evidences, mute witnesses, like for instance geological history, which can

trace the past of a place. Other such mute testaments are the old buildings that store

annotations of authenticity especially of a city’s golden age.

THE CITY OF BANDUNG The City of Bandung is one of several large cities in the Republic of Indonesia

that was the site of a dynamic colonial European enclave. The city contains many

sites and monuments of various genre or architectural styles. Bandung has been

called the ‘laboratory of architecture’ because of the myriad and varied styles of high

architectural forms that it contains, consisting of vast residential districts, government

offices, military complexes, churches and mosques, schools, and commercial

buildings which still grace the city centre.

CITY GROWTH Current social-political orientation to increasing city revenues has been the trigger

for wide-ranging economic pressure, where potential financial gain has been dazzling

even with its attendant risks and gambles. This is especially so when the risk itself is

viewed with little relationship between it and personal consequences.

This tendency overwhelms the current city leadership. The number of old

buildings that comprise the city’s historical record--besides the grace they offer its

residents-- fall to the wrecker’s ball in the name of modernization.

Often this modernization results in a sprawling metropolis that compels changing

functions, largely of residential areas turned into commercial enclaves. The problem

of increasing population pressures itself brings with it the increasing need for better

infrastructures to serve them, more housing, more schools, more shopping complexes,

hotels, and so on.

These needs cannot be denied as the number of residents increases and the

economy grows so that the need to anticipate these phenomena increases even at the

cost of overlooking legal and historical values that function as the soul of the city.

HISTORY OF THE CITY The city of Bandung was not developed at the same time as the surrounding

county. The earliest reference to the area was in 1488, but modern history dates from

a settlement in the middle of the 16th Century and its first leader, Tumenggung

Wiraangunangun, who ruled until 1681. There is however much archeological

evidence of early Java Man’s presence in this fertile basin.

The 16th Century settlement was named Krapyak

(presently Dayeuhkolot) located at the confluence of

the Cikapundung and Citarum rivers about 11

kilometers to the south of present-day Bandung. At

the time of the leadership of the sixth ruler, R.A

Wiranatakusumah II (1794-1829), who was given the

title "Dalem Kaum I", the area was under the

suzerainty of the Kompeni of the Netherlands East

Indies, lead by the governor-general Herman Willem Daendels (1808-1811).

In order to facilitate his duties to protect the island of Java from encroachment by

other colonial forces, Daendels create the Groote Postweg, or Great Post Road, which

extended from the western part of Java island in Anyer, 1000 kilometers to the east at

Panarukan, on the most eastern coast of Java. The actual construction of the road was

overseen by local officials along the route and carried out by locals who were

conscripted away from their farms and families to labor on the mountainous road,

many losing their lives in the process.

In the area of Bandung, the Post Road was begun in 1808, with the widening of an

existing pathway, and today the segments of the road that pass through the city have

been re-named Jalan Jenderal Sudirman - Jalan Asia Afrika - Jalan A. Yani,

continuing all the way to Sumedang and beyond. As the existing community was

living some 11 kilometers to the south, Daendels ordered in an official letter of 25

May 1810, their resettlement to the new road and the construction of a new county

seat at the junction of the new road and the Cikapundung River.

What Daendels didn’t know at the time was that there were already plans for the

settlement to move, a strategic location having already been chosen for the new seat

of local government, just south of the Post Road. The reason for this initiative was the

annual flood of the rivers was already troubling the riverside community.

Between the end of 1808 and the beginning of 1809, the local leader and a number

of residents relocated from Krapyak to the new area. The leader chose residential land

on present day Cipaganti, moving again to Balubur Hilir, and yet again to Kampung

Bogor or Kebon Kawung, where the present day Governor’s Mansion is located.

It is not known the actual length of time that it took to

develop the new city centre. However, the plan developed

by Daendels was not the one implemented; instead the plan

developed by the local leader was executed. In other

words, the Founding Father of the modern city was Bupati

R.A.A. Wiranatakusumah II and the City of Bandung

marks the date of its founding from 25 September 1810. R. A. Wiranatakusumah II

(1794-1829)

CITY GROWTH

The flowering of the new city and its strategic location in the middle of the

flourishing region and profitable Priangan plantations convinced the Dutch in Jakarta

to move the regional administration from Cianjur to Bandung in 1856. The actual

move was completed in 1864 through the official document of 7 Agustus 1864 No.

18, and the city became the seat of the regional administration of Priangan. With this

change the function of the city changed to the dual role as county seat, under the

auspices of R.A. Wiranatakusumah IV (1846-1874) as well as regional capital, under

a Dutch residen. The area constructed for the regional seat was in the district of

Cicendo, and the governor’s mansion with a small government hostel was completed

in 1867 and is still in use today by the Governor of West Java Province. City

development was hastened by new streets and municipal facilities, while the numbers

of roads leading to the city increased rapidly as well.

The next major stage of development was marked by the advent of the rail line

from Jakarta to Bandung in 1884 and Bandung was chosen to be the headquarters for

the national railway’s western sectors. This further increased the pace of

development. This can be seen in the following table that outlines the specific

population growth of Bandung.

Bandung City Residents 1889-1906

Year Indigenous Europeans Chinese Arabs others Total

1889 16.424 339 974 263 18.000

1890 16.656 467 923 68 18.114

1891 19.240 591 1.140 69 21.040

1892 19.370 601 1.150 60 9 21.190

1893 22.000 548 1.182 69 1 23.800

1894 22.754 724 1.453 57 24.988

1895 23.731 968 1.756 59 26.514

1896 26.247 1.134 1.958 43 29.382

1897 24.000 800 1.800 60 26.660

1900 24.748 1.522 2.630 43 20 28.963

1905 41.400 2.200 3.700 100 47.400

1906 41.493 2.199 3.704 98 47.194

(source: Hardjasaputra, 1996: 16)

Towards the end of the 19th Century, the number of Europeans in Bandung

reached many thousands and these people desired to have some autonomy from the

central authority in Batavia (Jakarta). At the same time it was realized in the capital

that the centralized system was not functioning with good efficiencies. It was also at

this time that East Indies commercial practices were hindering potential economic

growth and so the social-political policies changed and local administrative controls

were extended.

Under the local leadership of the county chief, Bupati

RAA. Martanagara (1893 1918), autonomy was enacted and

for the first time the county government was given a special

budget over which it was free from central controls to

implement city strategies.

Under the new law of decentralization, Undang-Undang

Desentralisasi (Decentralisatiewet) issued in 1903, there

were local ordinances put in place, among them the Decentralisasi Besluit and the

Ordonansi Dewan Lokal in 1905. On 1 April 1906 the city was declared a gemeente

(kotapraja) or autonomous municipality. This further strengthened the growth of the

city as a regional seat. Its new status brought an Assistant Resident of the Priangan

Region who was also head of the local council (Gemeenteraad), and in 1913 the city

was overseen by a mayor (burgemeester).

RAA. Martanagara (1893 - 1918)

In the beginning the city offices were housed in the ground floor of a printing

company, Percetakan NV Mij Vorkink (presently thei Toko Buku Sumur Bandung on

Jalan Asia Afrika). Not long following, offices were moved to the “Gedong Papak”,

where they remain today.

Only a few dozen houses were

constructed by 1810, but growth increased

from year to year.

BANDUNG Map of 1825

On 1 April 1906 the city consisted of

some 900 ha., increasing to 2.150 ha.

by 12 October 1917; 3.305 ha. in 1945,

8.098 ha. in 1949, and finally to

16.730 ha. on 22 January 1987.

source: Kunto, 1984: 183

The major city development plan was

fashioned by the splendid architect

E.H. Karsten in 1930, a visionary 25

year plan for the growth of Bandung

whose population was projected to

become some 750,000 residents. The city plan for Bandung made in 1985 projected

growth to include 1,665,000 residents with a land area of 8.096 ha. for 2005. Further

revisions between 1985 – 2005 made in 1991 projected 2,096,463 people in 2005

with a land area of 16.730 ha. Projections for the growth of residents revised in 1992

was for 2,509,448 people. The attractiveness of Bandung as a ‘city of education’ became well-known and

increased urbanization pressures not only from outlaying areas, but from all over the

country. The city continues to outstrip population projections from city plan to city

plan.

Currently, the number of people in the City of Bandung forecasted for the year

2025 is 5,500,000 while the physical size of the city remains much as it did in 1850,

some 16.700 hectares, landlocked as it were by encircling mountains. The planning

needs for a growth of this size speak for themselves, and of course are the central

dynamic in considering how the city should be developed for the future.

The following article was taken from the local newspaper of Surat Kabar Harian

Pikiran Rakyat of Monday, 8 January 2007, and was written by the head of the City

Planning Board :

“Head of the City Planning Board, Mr. Tjetje Subrata, announced that the most serious problem facing the city is population growth. At present (2007) the City of Bandung already is the most dense city in the world with some 2.6 million residents. ‘This is today…imagine just 20 years into the future when it is predicted that the size will be twice that.’

According to Mr. Tjetje, in 2025 the number of residents will reach 5,5 million while same the land area will remain the same. ‘This is a problem that needs addressing today, not waiting until tomorrow. To solve this will require vigorous and insightful planning,’ he said. Mr. Tjetje explained that population increases bring need for massive changes in infrastructure needs. ‘Providing the increased infrastructure, new civic facilities must be calculated. And then developed,’ he stated.

Another solution, continued Mr. Tjetje, was the possibility of increasing use of the areas that currently lay outside of the city boundaries, into the smaller villages of the county and as far away as Subang and Sumedang (both some 40 km. distant from the city), Garut (some 60 km. from the city). This conurbation will result in the concept we refer to as Bandung Metropolitan.

‘At this time, the city is already dependent on bordering municipalities, and the city itself no longer can provide its own food stuffs, rice, vegetables, fish, milk, meat, eggs, etc. All of these come from outside the city limits.’

‘Among other solutions, plans are already in the works to develop high-rise living accommodations. The management of mass transport and the handling of immense waste products…possibly to augment energy resources are being considered.’

According to Mr. Tjetje, the City Planning Board is already moving in these directions and the concept is being fashioned into a 20-year development plan for the city. The development of this plan will take into consideration the many components of the society and include a period of preparedness. The plan will include a time table and involve technocrat ,and planning professionals to scope out the 20 year plan.’

This article suggests that increased population density requires immediate and critical

attention that will further tax the city’s development needs. Therefore in 2004 the

law Undang-Undang Nomor 32 was passed concerning regional administration, which

gave broad authority to the city for its own planning scheme. It is hoped that this law

and its implementation will create ‘win-win solutions’ for the problems facing the city

in its new development efforts. Success will require harmony amongst the three

elements of the city: community, government and private business.

DEVELOPMENT CONCEPT

Bandung was positioned in

the 1920’s to become the new

adminsitrative capital for the

whole country relocating from

Batavia (Jakarta) and as such

grand plans were made in a city

plan that would create a

gracious and spacious

government district as well as sufficient housing and new public amenities. It is not

therefore surprising that the buildings that were constructed in that period were of the

finest standards in the world and the city plan, one celebrating the period of

modernism.

If these efforts are examined today, it can be seen that the remains of this old plan

still create a unique and distinctive identity for the city. Development in these districts

is circumscribed and protected by designation as conservation districts so that the

historical environment may be maintained as an integral part and important dynamic

of new city development. Preservation

step in improving the livability of the

city for its residents.

Conservation districts p

and conservation is seen by some as an early

rovide the

‘un

of conservation philosophy alone, preservation is no barrier to

car

RESERVATION INITIATIVES

ave long been an important element in

suc

ique identity’ that is often lacking

in newer settlements and can be a tool

to market the city through tourism.

This development concept can be seen

in many of the best-loved and most-acclaimed cities in the world.

From the angle

eful development, as long as the development is wisely implemented, and planning

ordinances are honestly carried out.

P

Heritage conservation initiatives h

cessful city growth in strategies in countries around the world. In the United

States for example, incentives that include tax holidays and other special

considerations protect the shared heritage. In the United Kingdom, there is a program

known “Carrot and Stick” that helps communities protect their heritage. In Indonesia

itself, there are incentives and de-incentives spelled out in the national constitution

concerning the protection of the national patrimony (Undang-undang No. 5 tahun

1992 tentang benda cagar budaya, dan Kepmendikbud No. 062/U/1995, No.

o63/U/1995, dan No. 064/U/1995).

The implementation of heritage conservation in the country, and specifically in

Ban

rge as well concerning the lack of enabling legislation that

mu

d by the lack of public organizational

infr

the implementation of conservation of historic sites and monuments, and the

con

dung, are not yet effective. The reasons are many but include primarily the lack

of a defined and accepted inventory of protected sites and monuments that would

serve to ensure their legal standing under the law. I would like to note here that since

the 1992 constitutional inclusion noted above, not one case of illegal demolition has

been brought to court!

Other problems eme

st flow from a national constitutional amendment and provide the vehicles for legal

action at the state, city and county levels. However, in the Province of West Java,

where Bandung is located, there are heritage protection ordinances that are not yet

operational because details in the ordinances are not well enunciated. There are, for

example, no written references to what is specifically permitted and what, under the

ordinances, are defined as crimes. Further, the use of financial incentives has not been

implemented and so there is neither an incentive nor effective de-incentive to

motivate public and private owners of heritage buildings and sites to follow the

ordinances. Worst case is ‘midnight demolition’ but the ordinances also include rules

about maintenance that have no clout in the public view. There is also a lack of

understanding by the owners of heritage sites to their community relevancy and the

sense of community participation to support private heritage with public and/or

private funding or technical assistance.

These problems are compounde

astructure, public boards, civic committees, that are helpful to the public or able to

help fairly adjudicate decisions on heritage conservation issues for the city. And in

Bandung, there is at this time no money or political will to support committees of this

sort.

In

trol of these precious community assets, the authority of the city government is

still non-existent, due largely to the fact that the various laws and ordinances grant no

authority at a local level, the authority, for instance, of giving sanctions to those who

break the laws. This authority is still embedded in the federal government alone.

In the midst of steep development pressure the maintenance of the old buildings

and

The historic sites and individual monuments

wh

sor by one the o

districts is seen as a barrier to new development especially to the deveopment of

new commercial complexes.

ich are seen as valuable assets by heritage

practitioners and some tourism officials, and offer

identity and grace to the community, are seen by

developers as thorns in their efforts to smoothly

(and profitably!) redevelop valuable center city

areas due to the restrictions on development in

protected districts. The city of Bandung is but one

of the large cities in Java that is undergoing this

ld historic monuments are demolished, replaced by

bland and characterless commercial developments such as malls, row houses and

apartments If this continues without restraint, Bandung will lose its precious identity

and begin to resemble thousands of other places here and around the world. Part of the

special identity of Bandung resides in its store of Art Deco monuments which never

fail to awe visitors from Europe and North America.

Braga City Walk Bandung Mall, Apartment, Hotel

t of turmoil. One

Dept of Social Services building, one of the buildings in “Nautical-Deco” style built in 1935

Demolition in 2006

Bale Pakuan Town House 2007

Photo: Dibyo Hartono

Photo: Harastoeti

Other problems emerge as well concerning the lack of enabling legislation that must

trickle down from a national constitutional amendment and provide the vehicles for

legal action at the state, city and county levels. (see Drawing 1)

National Law No5/1992

Provincial conservation ordinance

County conservation ordinance City conservation ordinance

Drawing 1

Source: Harastoeti (2007)

THE WORLD

NATION

PROVINCE

COUNTY

CITY

Drawing 2

Source: Harastoeti (2007)

Historic districts, environments, historic monuments and sites, including

archeological sites exist in cities and counties, however their historic importance is

only recognized and protected by national authority at this time. See Drawing 2.

Heritage assets require listing in inventories at each level of public administration and

classification of their levels of protection which are listed as A, B or C, depending on

specific criteria. Many of these monuments and sites have been lost or demolished as

the result of burgeoning city and county development needs and the lack of

appreciation by the public of the importance of these cultural assets. One of the

reasons that heritage conservation efforts are not often successful is that generally the

government is more interested in creating government-funded projects and tend to

identify with developers (particularly large commercial developers) so that local

managers can find new sources of tax revnues for their districts. In this sometimes

unhealthy relationship, questionable financial dealings are often transacted, and the

lack of government transparency has called into question some of the more egregious

practices.

In turning the wheels of government for the goal of equitable community

prosperity, there need to be appropriate laws that guarantee positive community

development practices. The one aspect that must be in place is that government

administration should function according to the law. Creating an open and

transparent body of legal certainties will create a development environment that will

aid social stability and equity. While the axion ”it is love not laws that will save the

heritage of mankind” is not far from our thoughts, the legal framework must be in

place, monitored and adjudicated openly so that development can proceed without

anarchy and social chaos.

THE ROLE OF BANDUNG HERITAGE

Beginning in 1986, 13 people gathered regularly to discuss the architectural and

other built heritage and cultural heritage in Bandung. These people came from many

sectors: business, tourism, academics, architects, engineers, an astronomer,

anthropologists, newspaper editor, and others. As devoted and proud residents of

Bandung they were concerned with the seeming apathy and lack of civil efforts to

support this historic legacy that added grace and dignity to their lives. Eventually,

these meetings lead to inviting people to speak on aspects that were little-known at the

time on the city’s history and architectural sites and monuments. Out of these

conversations grew the commitment to form an organization that might address some

of the problems and opportunities present in this heritage treasure trove. It was

decided to focus on only the city of Bandung and commit to research, publication and

promotion of Bandung’s unique identity. A meeting with the mayor ensued and in

1987, Paguyuban Pelestarian Budaya Bandung (“Bandung Heritage”) was born at the

Hotel Panghegar. After all the talk, it was decided that an action step was required and

so a broad ranging exhibition was launched highlighting the special heritage of the

city. The exhibition began with local archeological finds, pictures and histories of the

major city monuments, and aspects of the prevailing Sundanese culture. These were

presented over a 5 day period at the Balai Pertemuan Ilmiah of the Institute of

Technology Bandung—itself a heritage monument. Architecure and anthropology

students from several city universities were recruited to help run the exhibition and a

series of seminars were run, open to the public. One of the key speakers, Robertson

E. Collins, was an American who was a member of ICOMOS USA and a cultural

tourism expert with the Pacific Asia Travel Association (PATA) based in Singapore.

From that time till this activities and networking through-out the world ensued,

largely through ICOMOS and then through some other regional groups that sprung

up. Close working relationships with the Bandung-based office of the Goethe

Institute, the French Cultural Center, The British Council as well as several of the

embassies in Jakarta lent expertise and authority to the work of Bandung Heritage.

Eventually several other heritage associations came into being in Medan, Yogyakarta,

Bali, and Jakarta. This increased the national networks.

An early opportunity was presented to the society by the local newspaper to write

half a page for Page 3 on historic events, heritage issues, etc., each Saturday as a way

of publicizing and sharing the common legacy of our city. Further to this Bandung

Heritage launched a program of monthly lectures on current and heritage topics open

to the public. These were held in city hotels that offered their meeting space and

coffee free of charge as a way of showing their support for heritage society goals.

What developed most importantly was the credibility of the group in the eyes of

residents and government officials alike. The city administration has taken up some

of the issues that most concern heritage in Bandung, and at this point, some 20 years

after its founding, there is a rare development planning meeting that does not include

an invitation to our society.

In concrete ways Bandung Heritage has enhanced the city with several building

restorations, such as the monument to Indonesia Menggugat, the Galeri Kita building,

the NISP Bank Branch , and Bandung Lautan Api Heritage Trail.

UNESCO AWARD

the NISP Bank Branch at Jalan Sawunggaling

Background

The Paguyuban Pelestarian Budaya Bandung or Bandung Heritage was born from

the initiative of residents from many disciplines, professionals and backgrounds.

They were brought together by their pride in the city and concern for its preservation.

The society is not dogmatic and its only core belief is that the ‘identities of the city

must be preserved and developed’. In this is the recognition that in any place there

are specific characteristics that differentiate it from other places…this stems from

local ethnic practices, natural environment and its monuments and sites. The remains

of the city’s historic past as well as the spirit of its current residents is what is worth

preserving.

The conservation of a country’s culture has many uses as it faces inevitable

development, and ramifications to national resilience in the face of globalization.

Conservation is not defined as anti-development, but merely the ‘management of

change.’

The remains of history come from many sources, technical, architectural, dance,

literature, traditional ceremonies and observances, cuisine, fashion, etc. In creating a

plan for conservation of the city, members of the society work as volunteers in line

with their individual interest and time constraints. Activities of the group include

working with government officials as well as private businesses and residents both in

the city, in the province and overseas.

The development pressures described above have brought about an ever-closer

partnership between the city administration and Bandung Heritage. This is due in part

to increased understanding of the role of tourism to city coffers, as well as public

awareness of the beauty of their special city. Residents who wish to renovate or

develop their heritage buildings are requested by the city to meet with the Bandung

Heritage members and obtain a written recommendation on their proposed changes. It

is especially at this time that owners may hear the history of their building and district

and its relevance to the other people in the city. Society members who are architects

can assist the owner to find solutions to not only provide more space or convenience,

but at the same time conserve the identity of the building as it plays its heritage role in

the city. The heritage society and consulting members refuse money for these

services in the interest of neutrality and credibility.

Further supporting the relationship between the city government and the heritage

society, the city tourism office is sponsoring a new city ordinance on heritage

conservation in Bandung. For this they have asked a team in the society to work with

them to make this ordinance. It is here that the role of Bandung Heritage in the

development and monitoring efforts can be employed to assure that precious assets

may be recognized and sustained for the city.

Not only does this cooperation ensure that internationally recognized standards,

heritage philosophy and practice are the basis for a heritage ordinance in the city, the

relationship also invites the opportunity to instill in city officials the opportunities that

heritage conservation can make for a city’s development. Heritage input into

development of the city also demonstrates how interwoven the aspects of heritage and

city life are, and how bureaucrats charged with the responsibilities of safe-guarding

the legacy of the past can work to protect, maintain both the built heritage and the

movable heritage that strengthen and enrich the life of a city. For this the issues of

synchronization and coordination are required so that the perceptions of the

bureaucrats and their authority as government officials are always in line with legal

conditions.

Fundamental to the solution of city problems the substance of heritage

conservation can be used to distil and complete the laws regarding historic buildings

and sites, moveable and intangible heritage to help move the thought processes to

creating identity of place not only for Bandung but for other Indonesian cities as well.

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Bibliography • Voskuil, RPGA (1996), Bandung: Beeld van een Stad, , Nederland: Asia

Maier, , ISBN: 90-74861-05-9, • Yulia Dewita (1997),Tinjauan Kelengkapan Subtansi Peraturan Perundang-

undangan untuk Pelestarian Bangunan Bersejarah (kasus Studi Kota Bandung),

• Jana Halida Uno (1998), Konsep Penerapan Insetif dan Disinsentif untuk Pelestarian Bangunan (kasus Studi : Kota Bandung),

• Dibyo Hartono (1997), Daftar Bangunan Bersejarah Kota Bandung, Bandung Heritage.

• Nina H.Lubis (2000), Sejarah Kota-kota lama di Jawa Barat, Jatinangor, Algaprint,

• Kunto Haryoto (1985), Wajah Bandoeng Tempo Doeloe, Badung: Granesia, • Paguyuban Pelestarian Budaya Bandung, Dinas Pariwisata Kota Bandung

(2006), Naskah Akademik, Draft Penyusunan Peraturan Daerah tentang Bangunan Bersejarah Kota Bandung.

• Sudarsono Katam & Lulus Abadi (2005), Album Bandoeng Tempo Doloe, Bandung: Nav Press Indonesia.

• Harastoeti DH. (2007), Makalah Presentasi Sosialisasi Pelestarian, pengembangan dan Pemanfaatan Tinggalan Budaya di Jawa Barat,Hotel Papandayan Bandung.

Acknowledgemnts

• Mrs. Frances B. Affandy, Chairman of ICOMOS Indonesia • Mrs. Harastoeti DH. Chairman of Bandung Heritage Society