The first steps in the Kangla Fort project were to conduct Historical Studies and a study of the site (Database of Inventories) of the fort that were submitted along with a Preliminary Concept Plan. The findings led to the Statement of Significance that starts this volume, i.e. why is the fort so important. Issues of authenticity and other needs of the people are dealt with in Conservation Issues, while the cultural resources of the fort are described in Rediscovering Kangla Fort. The need to integrate heritage management into mainstream management is discussed in Core Management. All these aspects are brought together in the Kangla Charter that is to form the legal basis for future activities in the fort. The Concept Development Plan provides the framework for the Archaeological Park Scheme, while the Integrated Management provides an integrated mechanism for managing the fort as a cultural resource as well as urban area. Finally, the Conservation Guide sets forth the necessary guidelines for preservation and restoration activities in the fort.

The Project Overview in Volume-II provides a physical context to the Archaeological Park Scheme while Concept Development discusses site strategies in detail, before the final section on Projects details out all the projects including designation of areas, summary of activities, list of concerned agencies in each case, and preliminary budgets.

Introduction to Kangla Charter

The word “Charter” is used to denote that the proposed Kangla Charter is the “meta level” document that is required to protect cultural resources in the development process. It is an emerging core framework to guide all projects and the managers when there is neither legal protection for resources nor appropriate management measures. It is for the Government of Manipur to use the logic and principles of the Kangla Charter to ensure both protection and management for the cultural resources of Kangla fort.

In order to ensure the maintenance of the cultural values of Kangla Fort this special Charter is the first step, before implementation of the Archaeological Park Scheme / Concept Development Plan (refer Chapter 6). The flexibility that exists within the planning process needs to be taken advantage of to later develop a long-term need for a new legislation called the Archaeological Park Act, which will be an extension of the Kangla Charter.

The core of effective urban management is a legislative framework. Instead of terming it as a bill or a legislative document we have called it the Kangla Charter. However this charter has the same function as a legislative document. The function of the Charter as legislation is to protect and manage all resources (cultural, natural and ecological) comprehensively - yet it also is a development guide listing out the do’s and don’ts clearly.

The aim of the Kangla Charter is to enable and involve all departments, agencies, community and other stakeholders to work together with a common Memorandum Of Understanding i.e., partnerships between the government and the people of Manipur.

The Significance of Kangla

A Charter is based around a Statement of Significance that establishes the importance of the entity in question. Kangla Fort, as has been described earlier (refer Chapter 1) is significant at a local, state, national, and international level, which can be summarized through the following statements.

“The antiquity and continued occupancy and use of Kangla for over two millennia make it unique. Kangla, the single representative of Manipuri culture has existed as the capital of the Ningthouja dynasty for nearly 2000 years – and today represents the history, culture and integrity of the people of Manipur.”
“Kangla is sacred and intimately related to the Meitei culture, cosmogony and the religious history of Manipur since ancient historical times.”
“Kangla Fort is unique in India and by belonging to a family of South Asian forts, represents an Asian Regional Fort Type”
“Kangla Fort contains a polo ground that is unique as it probably is the oldest polo ground in India”
“The purpose of the Kangla Charter therefore is for maintaining the significance of the fort as paramount. All actions should be within the limits of the Charter.”

Archaeological Park Concept

In order to address the challenge of mainstreaming heritage management yet maintaining the heritage significance (refer Chapter 1), the concept of the Archaeological Park is proposed within the existing legal framework of the state. The process is conceived as a part of the urban management and mainstream development of Imphal. The concept of an Archaeological Park is also aimed at managing the cultural resources of areas, which have varied heritage of different historical periods. The methodology evolved to realize the Archaeological Park Concept emerges from a thorough consideration of the existing laws; its lacuna and problems understood; development of an integrated framework so as to cover values and facets that have been ignored or left out in the existing systems.

This is a new paradigm and not an extension of many outdated laws that are in use in the country. The concept of the Archaeological Park provides the opportunity for the present and future citizens of Manipur to rediscover their cultural heritage in a truthful manner through a first hand interaction with heritage. The concept of the Archaeological Park is therefore summed up in the following statements:

“An Archaeological Park can be termed as a definable area with definable boundaries distinguishable by heritage resources and land related to such resources, which has potential to become an interpretative, educational and recreational resource for the public. Though the priority is the built and archaeological heritage, ecological and landscape aspects are not excluded. This is the way of protecting heritage resources, including discovered / undiscovered underground structures till the resources to excavate them are found.”
“An Archaeological Park will not preclude recreational usage as long as the needs of heritage are not compromised. It will primarily serve educational and conservation needs. Educational by introducing the past to people through innovative and enjoyable ways so that they perceive their city as pluralistic and layered. As these layers are unfolded, one hopes that people will develop a positive attitude towards the city itself and inspire them to become responsibly involved in the heritage management process. This will serve the needs of heritage management in a truly participatory manner.”

Governing Principle for Conservation - Authenticity

Authenticity is the governing principle for conservation all over the World today (refer Chapter 2). The Nara Document on authenticity is a document of the ICOMOS, which states the principles of authenticity and is internationally accepted (refer Appendix 1). The Nara Document on Authenticity is conceived in the spirit of the Charter of Venice, 1964, and builds on it and extends it in response to the expanding scope of cultural heritage concerns and interests in our contemporary world. The Nara document is given great weightage by UNESCO thus it becomes even more relevant in case of Kangla Fort, as the fort is a potential World Heritage Site. Hence it has been used as a model for the Kangla Charter.

Authenticity as defined in the charter means that there should be integrity and truthfulness in form and design, materials and substance, use and function, traditions and techniques, location and setting, and spirit and feeling, and other internal and external factors of the cultural resource.

The NARA document has far reaching implications in the context of Manipur and its culture and heritage specifically in the case of Kangla Fort as many layers of history are overlaid each other and they are present today within the fort in various forms enmeshed with each other. Regarding the plurality of historical layers the NARA document states the following:

“Cultural heritage diversity exists in time and space, and demands respect for other cultures and all aspects of their belief systems. In cases where cultural values appear to be in conflict, respect for cultural diversity demands acknowledgment of the legitimacy of the cultural values of all parties”.

Resolving Existing Legislation

There are presently three sets of legislation applicable to Kangla Fort. These are:

  1. Manipur Ancient and Historical Monuments and Archaeological Sites and Remains Act, 1976 (referred to in this document as the State Monuments Act) This Act is responsible for the protection and preservation of historical monuments, archaeological sites and remains that exist in the state of Manipur.
  2. Manipur Town and Country Planning Act, 1975. This Act is responsible for regulating the development process within the state of Manipur.
  3. Cantonments Act 1889. This Act is responsible for declaring Kangla Fort as a cantonment area.

At the outset it is clear that the Cantonment Act has the potential to create a conflict of governance and use within the fort. In order to remove the conflict and achieve clarity in the control structure of Kangla Fort as an Archaeological Park the Cantonment Act must be repealed immediately and the area brought entirely under State Government control.

On the assumption that in some near point in the future the Cantonment Act will no longer apply, the Charter resolves the lacunae within the two remaining sets of existing legislation – which will apply - as follows:

  • The Town and Country Planning Act, while allowing for development and change through the process of Zonal Plans, Development Plans and Schemes, does not recognise the significance of Kangla Fort as a unique heritage resource. The notation of Kangla Fort as Regional Park in the present Master Plan for Imphal, while allowing for recreational uses to be developed in the park, does not afford enough protection or management for its cultural resources.
  • The Gazette Notification 515 under the State Monuments Act ’76 has its limitations. This definition allows only for protection and preservation of certain entities within the entire park area. However some areas within the park which belong to present date (which is not recognized as a valid time period by the Act to be classified as monument), hence cannot be categorized as monument as per the Act. Such areas simultaneously need protection to avoid neglect and subsequently encroachment. Judicious application of “usage” from the Town Planning Act can improve maintenance and will deter neglect
  • If only the Monuments Act were to be applied to the park then it would remain inaccessible to the people of Imphal. It would remain as a monument, which they would not be able to participate in. If Kangla Fort has to be opened up to the local community some recreational use has to be accommodated within the park. Therefore, spaces for recreational use for the people and community of Imphal should be provided for within Kangla Fort as per clauses of the Town Planning Act.
  • The conflicts are resolved by the use of applicable clauses from both the Monuments Act and the Town and Country Planning Act, which allows for change, and by designating specific areas of Kangla Fort as governed and protected by either of these Acts depending on the need established through research. Protection for the various sectors and entities is listed later in this Chapter.
“Kangla Fort as an Archaeological Park shall use the applicable regulations of the Manipur Ancient and Historical Monuments and Archaeological Sites and Remains Act, 1976 and the Manipur Town and Country Planning Act, 1975 to achieve the highest standards of protection and management for its cultural heritage and a new life and harmony for the park in which the people of Manipur shall be a partner with the Government of Manipur.”

Cultural Resource Management

For purposes of comprehensive protection and effective management of the cultural resources, a multi-level management approach is necessary, the need for which has been described in more detail in Chapter 4. The various aspects of management needed and the organizations involved need to be resolved to manage the complex cultural resource entity of the Kangla fort.

A Cultural Resource Management approach means all aspects of cultural values of park entities are assessed, and their significance stated. The information gathered shall be compiled into a Cultural Resource Database that shall be the repository for all details about the entities including their significance (refer Chapter 3). The cultural significance becomes the basis of the policy on which decisions measures and actions are taken. The entire park as a cultural resource entity is brought under management with monitoring and review process. A responsible agency and the required technical expertise are other aspects of management that will be provided. This will provide a management system for all stakeholders, users, and decision-makers to follow.

“All aspects of management of Kangla Fort, including the protection and management of all its cultural resources as well as the monitoring and review of all management activities shall be integrated within the ambit of the Charter with the aim of achieving the highest standards of management for the Archaeological Park.”
“The cultural significance and other information about the all the cultural resources of Kangla Fort shall be permanently documented and archived in a manner that is equally and freely available for all citizens of Manipur and others who may be interested to see.”
Drawing 06: CATEGORIES OF CULTURAL RESOURCES
Drawing 06: CATEGORIES OF CULTURAL RESOURCES
Drawing 07: CONCEPT DEVELOPMENT PLAN: PROPOSED PROTECTION
Drawing 07: CONCEPT DEVELOPMENT PLAN: PROPOSED PROTECTION

Categorization of Cultural Resources (Refer. Dwg. Nos. 05 & 06)

The cultural resources belonging to the historical layers described earlier (refer Chapter 2) as found on site (refer Chapter 3) were placed in the following broad categories after the analysis and assimilation of the inventories. These have been categorized both on the basis of the time period that belonged as well as their nature – whether they were buildings or open spaces, their scale and use.

Archaeological Heritage

Remains from the Manipur Period Fort like earthworks, moat, walls, ruins, moats, and large areas with under ground heritage.

Architectural Heritage

These are buildings both from the British period and the Manipuri period. The Manipur State Monuments Act already protects some of the Manipuri period buildings.

Sacred heritage

The sacred heritage is mostly linked to the Maitei culture and includes shrines, open spaces, memorials, trees and ponds ( pukris).

Historical features

These are both from the Manipuri and the British period. This category includes memorials, inscriptions, and gravestones.

Historically important open spaces and other features part of the cultural landscape.

This category relates to the geographical aspect of the fort and areas that contribute to the cultural landscape like the historical open spaces – polo ground & colonial gardens, and geographical features such as the river, river bund, river bank, other open spaces (which may be archaeological, assessment needs to be done) etc.

Residual buildings

These are buildings from the British period to the more recent times and are unprotected. These have to be reassessed before any development takes place within the Kangla Fort.

The categories of cultural resources are listed in the following tables. It must be noted that some of the cultural contents show multiple categorization and therefore multiple values of which all must be preserved. For example the Uttra is both archaeological and sacred, and therefore its historic, archaeological, and sacred values must be equally protected.

“The cultural heritage diversity of Kangla Fort Archaeological Park is to be maintained in it’s entirety and all inherent values present are to be protected, with all conservation or development activities maintaining the significance of these values”.
“The Cultural Resources of Kangla Fort Archaeological Park are to be protected managed, and conserved in a manner consistent with the aims of the Kangla Charter and in which all inherent and significant values are maintained.”
 

Cultural Resources of Kangla Fort (Refer Dwg, No. 06)

The table below lists the various entities of Kangla Fort that have been inventoried and are to be notified as ‘Cultural Resources’ under the Kangla Charter.

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Table 5-1: Categorization of Cultural Resources of Kangla Fort: No.s 1-30

Cultural Resources of Kangla Fort (Refer Dwg, No. 06)

The table below lists the various entities of Kangla Fort that have been inventoried and are to be notified as ‘Cultural Resources’ under the Kangla Charter.

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Table 5-2: Categorization of Cultural Resources of Kangla Fort: No.s 31-55

Cultural Resources of Kangla Fort (Refer Dwg, No. 06)

The table below lists the various entities of Kangla Fort that have been inventoried and are to be notified as ‘Cultural Resources’ under the Kangla Charter.

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Table 5-3: Categorization of Cultural Resources of Kangla Fort: No.s 56-75

Cultural Resources of Kangla Fort (Refer Dwg, No. 06)

The table below lists the various entities of Kangla Fort that have been inventoried and are to be notified as ‘Cultural Resources’ under the Kangla Charter.

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Table 5-4: Categorization of Cultural Resources of Kangla Fort: No.s 76-99

Archaeological Park Protection Levels

Under the framework of the Town Planning Act and the State Monuments Act, protection for the resources of Kangla Fort Archaeological Park is proposed at three levels – at the level of the park itself (entity), at the sector level, and the level of individual contents of the park. These are described as follows and listed in the table below:

The Kangla Fort Archaeological Park Entity (Refer Dwg 08)

The entire park entity with all its identified and unidentified cultural components, an area of 236.84 Acres, is a protected entity, protected by the State Monuments Act.

The Kangla Fort Archaeological Park Sectors (Refer Dwg 10)

For the protection and management of the park the park entity has been spatially divided into eight sectors based on specific cultural contents and significance (Ref. Map). These are proposed to be protected by the State Monuments Act and in some areas the Manipur Town and Country Planning Act. Each of the sectors has specific guidelines, which states the proposed allowable and prohibited uses and interventions.

The Kangla Fort Archaeological Park Contents (Refer Dwg 07)

Either the Manipur Monuments Act or the Town and Country Planning Act protect each Cultural Content of the Kangla Fort Archaeological Park though they are managed by varying agencies.

Sector-level Protection (Refer Dwg. No. 07)

 

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Table 5-5: Protection for Proposed Sectors of Kangla Fort Archaeological Park

Content-level Protection Categories

There are three categories of protection proposed based on the level of intervention and changes permissible to a cultural resource (archaeological park content) within the Kangla Fort. They are applicable to all types of heritage from all periods. All the three categories are monitored and standards maintained under the State Monuments Act.

P1:

For the resources that fall into this type of protection no changes are allowed and only preservation is allowed as a conservation action apart from maintenance as per the guide. Only archaeological excavations would be allowed in specific areas. The resources in this type are protected through the State Monuments Act. These are mostly archaeological and monumental in nature.
P2:

For the resources that fall into this protection type limited amount of changes and alterations are permissible for their reuse. The resources in this type are protected both through the State Monuments Act and also listed in KFAP Scheme/ KFAP Concept Development Plan (statutory scheme under TCPA’75). These are mostly buildings and open areas
P3: For the resources that fall in this protection in the KFAP Scheme/ KFAP Concept Development Plan (statutory scheme under TCPA’ 75) is applicable. These are mostly residual spaces and buildings regarding which the KFAP committee will take the relevant decisions.

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings
 

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Table 5-6: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 1-9

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings

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Table 5-7: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 10-26

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings

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Table 5-8: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 27-42

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings 
 

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Table 5-9: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 43-60

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings
 

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Table 5-10: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 61-73

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings
 

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Table 5-11: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 74-86

Cultural Resource (content-level) Protection

  • Refer Dwg. No. 07 for locations of Protected Buildings
  • Refer Dwg. No. 12 & Grid Maps in Appendix No.5 for locations of all buildings
 

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Table 5-12: Protection for Cultural Resources of Kangla Fort Archaeological Park: No.s 87-99

Buildings to be Removed (Refer Dwg. No. 09)

  • The realization of the Kangla Fort as an Archaeological Park will entail the removal of several newer military buildings and associated structures of no heritage value. This is because the concept of an archeological park is in conflict with the nature of a military cantonment, which by necessity has a larger number of ancillary support buildings. In particular a fair number of newer (most of them have been constructed post independence) military buildings are being removed to recover the archaeological site in Sector 1, as a first step to achieving the dream project (refer Chapter 1). In this area the archaeological site has far greater cultural value.
  • No demolition or removal of existing structures is permissible unless otherwise specified in the Concept Development Plan.
 

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Table 5-13: Buildings and structures to be removed in Kangla Fort Archaeological Park

POLICIES OF INTEGRATION

The Kangla Charter establishes a general policy of integration towards a cultural resource that ultimately belong to the people, no matter which agency is designated as the custodian of the resource. The Charter integrates the management of the Kangla Fort Archaeological Park with the existing legislative, administrative and management system through the Concept Development Plan (refer Chapter 6). In the process the Charter creates the concept of Integrated Management for the Kangla Fort Archaeological Park (refer Chapter 7 and diagram on the next page). Additional strategies for integration integral to the conservation process have been and are:

  • The formation of the Kangla Fort Archaeological Park Task Force will have representatives from all implementation agencies, all of whom have a stake in Kangla Fort furthering the aim of integration.
  • The Kangla Fort Archaeological Park Committee, which is the decision-making body, is advised by the community through the Kangla Fort Archaeological Park Steering Committee, which consists of heritage experts of Manipur, eminent citizens, and elected representatives with a stake in Kangla Fort.
  • Community surveys are seen as essential to public participation in the conservation process, as they are the most direct form of feedback from the citizens whose heritage Kangla Fort is. The process of generating the Concept development Plan involved such community surveys in order to find out the aspirations of the people of Imphal with respect to Kangla Fort (refer Chapter 6).
  • The opinions of eminent Manipuri personalities have been integral to the thrust of the Charter through a study of their writings and feedback in person.

“The Kangla Charter enshrines the policy of inclusion in that the Kangla Fort does not belong to any one person or group of persons and is first and foremost belongs to the people of Manipur in it’s entirety.”

“ All policies for conservation, development, and management of the Kangla Fort shall take into account the wishes of the people of Manipur, through an appropriate process of consulting the public in an open and transparent manner.”

SCOPE OF RESPONSIBILITIES

As described fully in the section on Core Management (refer Chapter 4), the Kangla Fort is the shared responsibility of the many agencies who are to have a stake in its future and who will be required to coordinate fully in its management (refer Chapter 7) as a cultural resource. The Government of Manipur is ultimately the custodian of the Fort and its designated nodal agency for the present is the Department of Archaeology, through the Ministry of Culture. In the future the Charter requires an autonomous institution called the Kangla Fort Archaeological Park Office to be set up as a project-coordination and resource centre with the full responsibility for the management of the park.

It is also imperative that all conservation techniques (refer chapter 8) and development, used by the different agencies aspire to the highest aesthetic and quality standards possible without compromise on account of time or funds.

“The State Government of Manipur shall take all steps to preserve the sanctity of Kangla Fort in the minds of the people of Manipur, and in order to effect this shall enforce the full responsibility for coordination and quality control between all the implementation agencies to ensure that the value cultural resource is not diminished in any way whatsoever.”

“ The State Government of Manipur shall endeavour to create an institution dedicated to Kangla Fort Archaeological Park, which shall assume the full responsibility for the future of all the cultural resources of the park.”

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EFFECTING THE CHARTER

To carry out the goals and aims of a legal conservation document such as the Kangla Charter, i.e. to bring it into a physical reality on a site requires a core statutory document, empowered by the Charter - which is also a plan for programmed action and integrated management of a heritage site. This is known around the world in conservation circles as “The Concept Development Plan”, and thus is the term adopted for this document as well. The Concept Development Plan (CDP) accomplishes the following within a clearly defined site boundary of a heritage site:

  • The CDP formulates the method of implementing the Charter within a framework of legal mechanisms
  • The CDP establishes the land ownership and permitted land use and activities on the site The CDP describes the nature of all the projects to be undertaken at the site
  • The CDP sets out the general and specific policies towards development of the site
  • The CDP includes rules and regulations towards protection of cultural resources in the site, and guidelines for the conservation of the resources
  • The CDP incorporates an integrated management plan for the site, which contains all the individual sub-plans including that of visitor management
  • The CDP establishes agencies and procedures for monitoring and review of work at the site
  • The CDP makes recommendations on the financial mechanisms and phasing for the effective conservation, development, maintenance, and management of the site

The CDP for a heritage site is therefore much more than a Development Plan as used by planners or a Concept Plan as used by designers – it is an all-encompassing legal document to ensure the future of a heritage site (refer Chapter 6). The CDP in the case of Kangla Fort is inseparable from the Kangla Charter, guidelines for protection of heritage as well as the concept of Integrated Management (refer diagram on the next page).

“The State Government of Manipur shall ensure the integrity of the Concept Development Plan for Kangla Fort Archaeological Park as being the statutory document representing the aims of the Kangla Charter, and no other document or action undertaken shall subvert the importance of the Concept Development Plan.”

CREATING PUBLIC AWARENESS

For a cultural resource as precious to the people of Manipur as the Kangla Fort (which is totally unlike other ‘dead’ forts in this regard), it is imperative that all decisions taken regarding the future of the fort be conducted in as transparent a manner as possible, and that the public be made aware of its significance and need for conservation. It is public support that will ultimately generate the momentum that is needed to carry the Archaeological Park Concept into the future.

“The state Government of Manipur shall endeavor by all appropriate means and in particular by educational and information programmes, to strengthen appreciation and respect by their peoples of the cultural heritage and resources of Kangla Fort. They shall undertake to keep the public broadly informed of the dangers threatening this heritage and of other activities carried on this regard.”

FUTURE DIRECTIONS

The Kangla Fort Archaeological Park Team has facilitated the process of enabling the conservation of Kangla Fort, by producing this Kangla Charter. This final draft can be used for discussions at different forums in the state. The ideas and information given in this Charter will need to be converted into articles of and Archaeological Park Act, to be passed by the Government of Manipur. It is evident that the legislation will ultimately emerge but it is for the Government and the people of Manipur to complete the process to its logical and final end.

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