Comprehensive Development Plan for the City of Luxor, Egypt

Comprehensive Development Plan for the City of Luxor, Egypt – Cambridge, MA Lexington, MA Hadley, MA Bethesda, MD Washington, DC Chicago, IL Cairo, E...
Author: Sibyl Small
6 downloads 0 Views 458KB Size
Comprehensive Development Plan for the City of Luxor, Egypt –

Cambridge, MA Lexington, MA Hadley, MA Bethesda, MD Washington, DC Chicago, IL Cairo, Egypt Johannesburg, South Africa

Investment Project #6, Investment Portfolio for the Creation of an Open Museum and Heritage District in Luxor City, Egypt

December 1999

Prepared for The Ministry of Housing, Utilities and Urban Communities, Egypt

Abt Associates Inc. 55 Wheeler Street Cambridge, MA 02138

Prepared by Gabriel Abraham Ashraf Bakr Jonathan Lane

Creation of an Open Museum and Heritage District in Luxor City, Egypt

TABLE OF CONTENTS TABLE OF FIGURES.......................................................................................................................................................6 LIST OF TABLES............................................................................................................................................................6 LIST OF A BBREVIATIONS............................................................................................................................................7 1. EXECUTIVE SUMMARY.........................................................................................................................................10 1.1 BACKGROUND .......................................................................................................................................................10 1.2 KEY A CTIONS FOR THE OPEN M USEUM AND HERITAGE DIST RICT ..........................................................10 1.3 M ANAGEMENT A REAS WITHIN THE OPEN M USEUM AND HERITAGE DISTRICT ...................................10 1.4 SUPPORTIVE IMPROVEMENTS IN LUXOR CITY ..............................................................................................12 2.0 INTRODUCTION....................................................................................................................................................14 2.1 ORGANIZATION OF THIS REPORT .....................................................................................................................14 2.2 BACKGROUND .......................................................................................................................................................14 2.3 THE INVESTMENT PROJECTS.............................................................................................................................15 Project 1: Restoration of the Avenue of the Sphinxes ..................................................................................16 Project 2: Development of The Destination Resort of El-Toad...................................................................16 Project 3: Development of the New Community of New Luxor...................................................................20 Project 4: Infrastructure Services for New Luxor and El Toad ..................................................................23 Project 5: Establishment of High-Value Agriculture ...................................................................................23 Project 6: Development of the Open Museum and Heritage District in Luxor City ...............................23 2.4 INDICATIONS OF THE EGYPTIAN GOVERNMENT 'S COMMITMENT AND OWNERSHIP .............................23 3.0 THE PROJECT........................................................................................................................................................25 3.1 PRECEDENTS FOR THE OPEN M USEUM AND HERITAGE DISTRICT CONCEPT .........................................25 3.2 PROJECT DEVELOPMENT OBJECTIVES.............................................................................................................26 3.2.1 Conserve & Enhance the antiquities and their settings ....................................................................26 3.2.2 Guide sustainable public and private investment in the Luxor City Open Museum and Heritage District ...................................................................................................................................................................26 3.2.3 Coordinate visitor and tourism services ...............................................................................................27 3.2.4 Improve the urban environment to create a city core which can reflect the aspirations and needs of current and future residents...............................................................................................................27 3.2.5 Increase municipal and institutional capacity to manage the protection and future development of the Open Museum and Heritage District.............................................................................27 3.3 PROJECT COMPONENTS......................................................................................................................................28 3.3.1 Coordinate Open Museum and Heritage District Improvements......................................................28 3.2.2 Conserve the antiquities and enhance their settings..........................................................................28 3.2.3 Preservation and Enhancement of the Open Museum and Heritage District’s Old Sections......30 3.2.4 Effectively use public lands and redeveloped private property within the historic district to accommodate increasing tourism.....................................................................................................................32 3.2.5 Enact Land Use Controls and Development Guidelines to Support................................................34 Preservation and Redevelopment Efforts ........................................................................................................34 3.2.6 Coordinate visitor and touristic services..............................................................................................43 3.2.7 Supportive Transportation Improvements ............................................................................................45 3.2.8 Develop training and assistance programs (in support of building management capacity) .....46 3.3 KEY RELATED PROJECTS...................................................................................................................................46 3.3.1 Planned Development Neighborhoods..................................................................................................46 3.3.3 New Public Facilities and Extended Utilities......................................................................................48 3.3.4 Improved Circulation and Access...........................................................................................................49 3.3.5 Sector Development Support...................................................................................................................52 3.4 PROJECT COSTS & FINANCING...........................................................................................................................52 3.4.1 Cost Elements ............................................................................................................................................52

4

Creation of an Open Museum and Heritage District in Luxor City, Egypt 4. IMPLEMENTATION.................................................................................................................................................62 4.1 A DMINISTRATIVE M ECHANISM ........................................................................................................................62 4.1.1 Existing Implementing Processes............................................................................................................62 4.1.2 The Institutional Capacity and Role of the Higher Council for the City of Luxor........................62 4.1.3 Recommended Implementation Entity for the Luxor Open Museum and Heritage District.........63 4.2 POTENTIAL FINANCING A PPROACHES............................................................................................................64 4.2.1 Donor Support............................................................................................................................................64 4.2.2 Visitor-Based Revenue..............................................................................................................................64 4.2.3 Other Sources of Revenue.........................................................................................................................65 4.3 RECOMMENDED PROJECT FINANCING A PPROACH ......................................................................................66 ANNEX 1: ILLUSTRATIVE FIGURES ......................................................................................................................71 ANNEX 2: LUXOR CITY DESCRIPTION AND EXIS TING DEVELOPMENT TRENDS ................................77 ANNEX 3: LUXOR CITY HERITAGE RESOURCES.............................................................................................78 ANNEX 4: THE GENERAL ENVIRONMENT FOR TOURISM..........................................................................111 ANNEX 5: CONCEPT FOR AN INTERNATIONAL ANTIQUITIES PRESERVATION FUND...................128 ANNEX 6: THE NATIONAL PLAN FOR THE DEVELOPMENT OF THE SOUTH OF EGYPT, 2017 ......133 ANNEX 7: PROFILE OF EGYPT..............................................................................................................................148 ANNEX 8: DOCUMENTS IN THE PROJECT FILE..............................................................................................162

5

Creation of an Open Museum and Heritage District in Luxor City, Egypt

TABLE OF FIGURES FIGURE 1: AVENUE OF THE S PHINXES AERIAL VIEW ...........................................................................................70 FIGURE 2: AVENUE OF THE S PHINXES GROUND VIEW ........................................................................................71 FIGURE 3: CORNICHE GROUND VIEW .....................................................................................................................72 FIGURE 4: VISITOR CENTER TOWARDS NILE VIEW ............................................................................................73 FIGURE 5: KARNAK TEMPLE PROCESSIONAL ENTRANCE.................................................................................74

LIST OF TABLES TABLE 1: PERMITTED LAND USES IN LUXOR CITY .............................................................................................36 TABLE 2: LUXOR CITY TABLE OF DEVELOPMENT S TANDARDS ......................................................................38 TABLE 3: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : LUXOR TEMPLE AREA .............................53 TABLE 4: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : KARNAK TEMPLE AREA ..........................54 TABLE 5: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : PRESERVATION........................................55 TABLE 6: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : REDEVELOPMENT EFFORTS ....................56 TABLE 7: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : VISITOR S ERVICES ..................................57 TABLE 8: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : TRANSPORTATION ..................................58 TABLE 9: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS : S UMMARY COSTS ....................................58 TABLE 10: LUXOR CITY HERITAGE DISTRICT PROJECT COSTS :PRIVATE INVESTMENT ............................59 TABLE 11: PDA REVENUE, BY YEAR ......................................................................................................................66 TABLE 12: PDA COSTS , BY YEAR .............................................................................................................................67 TABLE 13: PDA REVENUE-COST RELATIONSHIPS AND CASH FLOW ..............................................................68

6

Creation of an Open Museum and Heritage District in Luxor City, Egypt

List of Abbreviations Currency Currency Unit: Egyptian Pounds (LE) (as of December, 1999) LE 1.0 = 100 piasters LE 1.0 = US$ 0.29 US$ 1.0 = LE 3.41 Weights and Measures Metric System Abbreviations and Acronym CDCL Comprehensive Development for the City of Luxor CEA Cost Effectiveness Analysis EEAA Egyptian Environmental Affairs Agency EGSA Egyptian General Survey Authority EGSMA Egyptian Geological Survey and Mining Authority GDP Gross Domestic Product GNP Gross National Product GOE Government of Egypt GOPP General Organization for Physical Planning (within the Ministry of Housing, Utilities and Urban Communities) HCLC Higher Council for Luxor City IDSC Information and Decision Support Center IFC International Finance Corporation JICA Japan international Cooperation Agency LNT Luxor National Trust MFA Ministry of Foreign Affairs MFIC Ministry of International Cooperation MHUUC Ministry of Housing Utilities and Urban Communities MHUUC/ RSO Ministry of Housing, Utilities and Urban Communities /Research and Studies Organization MOC Ministry of Culture MOE Ministry of Economy MOF Ministry of Finance MOP Ministry of Planning MOT Ministry of Tourism MOTR Ministry of Transportation NGO Nongovernmental Organization PDA Preservation and Development Authority PDN Planned Development Neighborhood PMU Project Implementation and Management Unit SCA Supreme Council for Antiquities (within the Ministry of Culture) TDA Tourism Development Authority (within the Ministry of Tourism) UNDP United Nations Development Programme UNESCO United Nations Educational, Scientific and Cultural Organization USAID United States Agency for International Development

7

Creation of an Open Museum and Heritage District in Luxor City, Egypt

Creation of a Open Museum and Heritage District in Luxor City, Egypt Project Investment Portfolio Ministry of Housing, Utilities and Urban Communities / Research and Studies Organization, The Arab Republic of Egypt Fiscal Year July 1- June 30 President His Excellency Hosni Mubarak Project Sponsor The Honorable First Lady Mrs. Suzanne Mubarak Minister of Housing, Utilities and Urban Communities Dr. Eng. Mohammed Ibrahim Soliman National Counterpart of the Project Eng. Laila Kamel Barsoum, MHUUC National Project Director Eng. Mona Omar El Bassiouni, MHUUC/RSO Deputy National Project Director Eng. Hisham Moustafa, MHUUC/RSO Working Groups Moderator Dr. Tarek Wafik Project Consultants Abt Associates Inc. ICON Architecture Inc. Baraka Trading and Investments. Date: December, 1999 Principal Project Implementing Agency Higher Council for the City of Luxor (HCLC) Proposed Term: 2000-2017 For additional information contact: Eng. Laila Kamel Barsoum, First Undersecretary of State National Counterpart for the Project Ministry of Housing, Utilities and Urban Communities 1 Ismail Abaza Street, Kasr El Eini Cairo, Egypt 8

Creation of an Open Museum and Heritage District in Luxor City, Egypt Tel/fax 011-202-594-3088

9

Creation of an Open Museum and Heritage District in Luxor City, Egypt

1.

Executive Summary

1.1

Background

The Luxor Open Museum and Heritage District is a cohesive and enhanced historical zone that will protect resources and accommodate additional tourists. The proposed District will encompass the area roughly defined between the Winter Palace in the south to the canal 800 meters north of Karnak Temple, encompassing an area east-west that includes the primary souq east of the Avenue of the Sphinxes to the Nile on the west. The core of this area is a significant historical area that is being negatively impacted by a lack of open space, deteriorating infrastructure, and increasing congestion from ad-hoc development.

1.2

Key Actions for the Open Museum and Heritage District

1. Preservation, and enhancement, of Luxor City’s old neighborhoods in the District, including traditional market areas. 2. Redevelopment of some government properties and underutilized private parcels to create sites within the Open Museum and Heritage District for the new commercial development, tourism support services, and increased public open space. 3. Development of a Visitor Center, with centralized cultural site ticketing, interpretive facilities and centralized bus parking / tourist shuttle services. 4. Traffic and pedestrian circulation system improvements, including vehicular-restricted and pedestrian-only zones. 5. Coordination of the Open Museum and Heritage District improvements with the restoration of the 2,400 meter long Avenue of the Sphinxes through consistent public management of surrounding redevelopment.

1.3 Management Areas within the Open Museum and Heritage District Several sub-areas within the Open Museum and Heritage District are shown on Figure 13 with distinct objectives and proposed actions: 1. Monument Protection Area – this area is defined by Luxor Temple and the Karnak Temple site, and will include the connecting Avenue of the Sphinxes to be excavated and restored. Within this area, no private buildings or improvements would be allowed and priority would be

10

Creation of an Open Museum and Heritage District in Luxor City, Egypt given to archeological and preservation efforts. Public improvements would be allowed which are necessary to accommodate visitors to the monuments, including design of visitor improvements and facilities which can be sited and designed to positively contribute to the historic setting. 2. Neighborhood Preservation Area – this area, commonly known as Karnak Village, is located between the Avenue of the Sphinxes and the Corniche, from Karnak Temple to Pola Hotel Street. The area is a traditional, active neighborhood with an older main street, mosques, residences, and other neighborhood services, with relatively few tourist services or uses. Although the edge of this neighborhood may be somewhat impacted by restoration of the Kebash Avenue, the general form and character of the remainder of the neighborhood should be preserved, with new uses limited to residences and neighborhood support uses of limited height and of traditional character. This should not evolve into a major hotel or touristoriented district. 3. Central Luxor Area – this area consists of the areas immediately to the east and to the west of the proposed Avenue of the Sphinxes corridor, between the Airport Road and up to the southerly edge of Luxor Temple. These areas will be the parts of existing Luxor City to be most transformed by the Plan and the Open Museum District. To the west side of the Avenue of the Sphinxes, the area is characterized by many public sites (such as HCLC, the hospital, several schools, and others) that are or will be functionally obsolete. Many of these uses could be relocated to other regional growth locations such as New Luxor. The Luxor Museum and Convention Center are two important public uses within this western area which could be expanded and/or beautified. Existing substantial hotels in this area would remain, although priority would be given to new museums, museum expansion, and new parklands to serve a setting for the antiquities. Limited new hotel and tourist support activities could be encouraged in this precinct, if planned to insure adequate public access and surrounding green space. To the east side of the Avenue of Sphinxes, construction of the restored Avenue and the New Kebash Avenue will require removal of existing structures, enabling rehabilitation and new infill construction along these edges. The new East Bank Visitor Center would be located in this area, adjacent to the current inter-city bus station. New infill construction can be encouraged along the edges of abutting streets for retail uses, tourist developments, and visitor services. The Avenue project can create an opportunity to create linkages to the traditional existing souqs as well as expansion of the retail district, as well as venues for expanded tourist activities. 4. Central Corniche Area – along the Open Museum District, the green edge of the existing Corniche would be maintained. With the availability of the Cruise Ship Port south of the Luxor Bridge, cruise ship docking should be removed from significant portions of the lower Corniche, enabling expanded docking for small excursion boats and the development of additional retail and restaurant uses at the lower level, close to the Nile. 5. North Karnak Development Area – located north and northwest of the Karnak Temple area, the Sub-area contains two distinct areas. One area is a traditional neighborhood of 11

Creation of an Open Museum and Heritage District in Luxor City, Egypt narrow streets and dense residential buildings. The other area of the Sub-area is undergoing significant change as former agricultural fields give way to new informal residential development. Additional managed residential development is proposed for this sub-area in order to accommodate anticipated population growth in Luxor City and the voluntary relocation of residents presently residing in the nearby Monument Protection Area. As proposed in the Structure Plan, the North Karnak Development Area is planned for approximately 10,000 new residents by 2017, with ample land to accommodate more than 20,000 residents eventually. Through providing utilities, services and open spaces, it is expected that the neighborhood will be attractive to residents in areas along Kebash Avenue or immediately adjacent to Karnak Temple to relocate there. 6. North Corniche Development Area – The sub-area is presently characterized by a largely undeveloped riverfront along with a collection of tourism-oriented commercial buildings and vacant parcels along the extended Corniche Road. Lacking any historic buildings, but offering a prime location close to the historic core of Luxor City, the sub-area is proposed to accommodate tourism-oriented infill development at a density and scale greater than in other portions of the Open Museum and Heritage District.

1.4

Supportive Improvements in Luxor City

Additional improvements within Luxor City, but outside the Open Museum and Heritage District, will reinforce the Investment Project’s objectives, creating an improved environment for tourists and residents alike. Supportive improvements include: 1. Limited New Development – Population growth in Luxor City will be limited to 50,000 new residents through 2017. Informal settlements within monument areas and along transportation corridors will be discouraged. Development will be directed into planned areas well-served by utilities and public facilities. In addition to new residential development in the North Karnak Development Area of the District that will define the city’s northern edge and protect nearby antiquity sites, two other planned development neighborhoods are proposed in Luxor City: (a) East Luxor area - to define the city edge and coordinate with planned city growth to south; (b) South Luxor area - to define the city edge and coordinate with planned city growth to south. 2. Improved Circulation & Access – The roadway systems will be improved to reflect the defined city boundaries and to reinforce the planned new growth areas of the city. New railroad crossings, vehicular and pedestrian, for better east-west access will be provided. New arterial roads are recommended as part of the Kebash Avenue project, to relieve Corniche traffic, and along the eastern perimeter of the city. The street network will be extended to serve planned new development areas, along with improvements to appearance and function of major intersections. A new intersection with the inter-city arterial connecting to the New Luxor development, which would also improve the connection of East Luxor to South Luxor, will link over the railroad tracks. 3. An Enhanced Living Environment – In conjunction with planned new development in the peripheral neighborhoods of the City, a network of open spaces and parks would be formed.

12

Creation of an Open Museum and Heritage District in Luxor City, Egypt These will include major new District Service Centers, containing a mix of public facilities in areas north, east, and south of city to serve new and existing residents. Utilities would also be extended to serve planned development neighborhoods.

13

Creation of an Open Museum and Heritage District in Luxor City, Egypt

2.0

Introduction

2.1

Organization of this Report

This report is intended to provide officials and potential investors with a complete understanding of the proposal to create an Open Museum and Heritage District in Luxor City. All pertinent information, including project objectives, components, and recommended administrative and financial mechanisms for implementation are included. Annexes include important background information on issues including Luxor area heritage and tourism resources.

2.2

Background

Luxor (Thebes for the ancient Greeks) is home to a treasure of world-renowned monuments. Tutankhamun’s Tomb symbolizes Egypt’s Pharaonic past as much as the Pyramids. Nefertari’s Tomb, the tombs in the Valley of the Kings and in the Valley of the Queens, and the Tombs of the Nobles contain some of the most accomplished artwork in man’s history. Together with the Colossi of Memnon, Karnak Temple (the most imposing Pharaonic temple in all of Egypt) and Luxor Temple, they represent some of the finest examples of mankind’s early civilization and rank among its greatest cultural achievements. This unique cultural heritage continues to attract visitors from all over the world in ever-growing numbers. Ironically, their dedication to viewing these treasures is becoming a threat. In the tombs, their very presence is becoming detrimental to the quality and preservation of the paintings. There and in the temples, their increasing number and the virtual lack of any effective crowd management means waiting and jostling, elements that detract from the cultural experience. At the same time, the virtual absence of facilities for other tourist activities means very short stays in the area, lessening the benefits to the local economy, and less flexibility in scheduling visits to the cultural sites. Even so, the increasing number of tourists visiting Luxor has also provided the impetus for accelerated growth in Luxor and its surrounding areas. Growth pressures in turn have resulted in encroachments on the tombs and monuments, thereby jeopardizing the cultural heritage and impairing their value as a tourist attraction. To respond to these trends, the Ministry of Housing, Utilities and Urban Communities and the UNDP in 1997 sponsored Abt Associates Inc. for the study of a 20-year Comprehensive Development Plan for the City of Luxor (CDCL). The Structure Plan, Heritage Plan and Investment Projects produced as components of the project address ways to accommodate the projected growth in population, tourism and agriculture, while preserving and enhancing the antiquities. The objective of the CDCL project is to establish and carry out a work plan for environmentally sustainable tourism development that also benefits the local population. To reach this objective,

14

Creation of an Open Museum and Heritage District in Luxor City, Egypt the following core themes emerged from a study approach that stressed the active participation of all major stakeholders: (1) Preservation of cultural resources protects Egypt’s heritage and promotes economic development. (2) Planned growth promotes sustainable economic development. (3) Meeting the contemporary needs of local residents is vital to the success of plans. These core themes in turn identified specific objectives for the Comprehensive Development Plan for the City of Luxor: •

Contribute to the preservation of the area’s unique cultural heritage by alleviating pressures on the existing sites through the creation of additional tourist attractions;



Prevent further urban sprawl and the deleterious effects of unplanned development on the cultural heritage and on the population’s living conditions; and



Create new economic opportunities for the citizens of the region.

To achieve these objectives, the Comprehensive Development Plan for the City of Luxor (CDCL) incorporates the following elements: •

The creation of a Luxor City Open Museum and Heritage District, preserving the key historic features and settings in the City’s old sections.



The restoration of the Avenue of the Sphinxes, linking the major temples of Karnak and Luxor;



The development of a tourism zone south of the City of Luxor in the El Toad, comprising hotels as well as a golf course and facilities for other tourist activities;



The creation of a planned new community, New Luxor, south of the present city, for a target population of 200,000 residents by the year 2017; and,



Introduction of and support for the cultivation of higher-value crops in the agricultural zone surrounding the City of Luxor.

2.3

The Investment Projects

The Comprehensive Development Plan for the City of Luxor is being developed in a series of stages. The initial document was designed to build consensus around a comprehensive conceptual framework. In the second phase, a Structure Plan translated the basic concepts into specific project elements. These elements are further refined and elaborated in a series of six investment projects, each focusing on one aspect of the overall project:

15

Creation of an Open Museum and Heritage District in Luxor City, Egypt

Project 1: Restoration of the Avenue of the Sphinxes During the Pharaonic period, the Avenue of the Sphinxes connected the Temples of Luxor and Karnak, a processional avenue lined on both sides by 1,200 statues of sphinxes. Both temples were substantially completed during the New Kingdom period, over 3,000 years ago. Successive rulers altered and added to the temples; Amenhotep III built the Temple of Luxor during the 18th Dynasty, adding gardens between the Temple of Luxor and the complex of temples at Karnak. The ram-headed sphinxes lining the avenue bore his likeness. The centuries since have buried this processional avenue and its statues under 2 m of silt and sand, and urban development covered it with housing, asphalted streets, and other structures, obscuring its route and interrupting this dramatic connection. Over the last 50 years, portions of the Avenue of the Sphinxes (also known as Kebash Avenue) have been excavated, revealing remnants of the sphinxes and the roadbed. Short segments near each temple have been fully excavated and are now integral parts of the antiquities settings. Test excavations at segments along the 2.4-kilometer length of the Avenue have verified its location and underlined its archaeological potential. The investment project focuses on the renovation of the Avenue of the Sphinxes to improve the touristic experience, increase the vitality of the city center, and form the centerpiece of an Open Museum. The emphasis of the project at all times is on the accommodation of the living needs of the permanent population (mitigating the effects of congestion in a growing city center) with an active effort to increase job and entrepreneurial opportunities. The restoration project comprises several major actions, several of which will require substantial outlays and demand intensive implementation oversight. These actions summarized below are explained in detail in Investment Project 1. The total cost of the project is estimated at approximately US$40,000,000. (1) Purchase of land where necessary to a width of 76 m; (2) Relocation housing for the residents of over a hundred housing units on top of the Avenue of the Sphinxes; (3) Phase demolition of housing, commercial buildings, and government and religious buildings intruding on the Avenue of the Sphinxes; (4) Excavation to a depth of 2 m: restoration of the sphinx statues and landscaping; provision of visitor amenities; and (5) Modification of the adjacent street layout and street crossings of the Avenue of the Sphinxes. In addition, the project will include measures to protect the setting. Administrative regulations and enforcement provisions will remove intrusions onto the Avenue of the Sphinxes, prevent future intrusions, and ensure that adjacent uses are compatible with the historic nature of the Avenue.

Project 2: Development of The Destination Resort of El-Toad

16

Creation of an Open Museum and Heritage District in Luxor City, Egypt The objective of the project is to establish and carry out a work plan for environmentally sustainable tourism development that also benefits the local population. To reach this objective the following core themes were identified: 1. Preservation of cultural resources protects Egypt’s heritage and promotes economic development. 2. Planned growth promotes sustainable economic development. 3. Meeting the contemporary needs of local residents is vital to the success of plans. The Need The creation of a tourism zone outside Luxor City is necessary to serve the future needs of the rapidly growing regional tourism industry. With tourism in Luxor projected to increase from 1 to 4 million visitors over the next 20 years, the area needs an estimated 6,600 new hotel rooms, in addition to the 2,280 rooms currently being planned in Luxor City proper. Existing hotel development areas will not be able to serve future needs. Suitable areas in Luxor City itself are limited to small infill parcels along the Corniche or lands on the perimeter of the city that are reserved for agricultural use. Proposed hotel sites in outlying areas, such as New Thebes and El Khuzam, would add to capacity, but the scale and location of these areas are not ideal for a major tourism zone. A large area with site amenities and strong regional access is needed as a major tourism zone for the Luxor region. Such an area not only can provide ample sites to support new hotel construction but also can support tourist recreational services and amenities which contemporary tourists expect. The inclusion of diverse activities within this zone is essential to expanding the range of activities for tourists and provide some alternatives to relieve pressures on the cultural heritage sites. Location On-site with favorable development potential is located in the El Toad area of the region. Encompassing two large, undeveloped plateaus approximately 9 km south of Luxor City and 2 km south of New Luxor and also 2 km south of the only Nile River Bridge in the region, El Toad offers a dramatic setting that can support significant tourism development. North and westward views from the plateaus take in the Nile River Valley and distant Necropolis. In other directions, views take in the wadis, agriculture and desert lands that frame the site. Local character is provided through the nearby villages, the infrequently visited and attractive El Toad Temple site and commoner tombs. Existing regional links between El Toad and other East Bank activities include the inter-regional rail line and Cairo-Aswan Highway that run along the western edge of the site. Its proximity to the Luxor Bridge provides exceptional access to tourism attractions on the West Bank. The proposed cruise ship port immediately adjacent to the area will further enhance the value and attractiveness of El Toad. The Vision The El Toad Tourism Zone will include both tourism accommodations and attractions with regional appeal. Commercial and recreational attractions will make El Toad a major tourism destination, thereby promoting longer stays in the Luxor region, helping to relieve the visitor volumes at area monuments, and increasing economic opportunities for local residents. Amenities will include a golf course, theater, museum, large-scale gardens, tennis, and equestrian facilities. Concentrating 17

Creation of an Open Museum and Heritage District in Luxor City, Egypt hotel development in a well-planned zone will also achieve economies of scale for provision of superior amenities, maintenance, events planning and security, as hotels can share promotional programs and facilities. The Plan for the El Toad Tourism Zone has been developed to create a desirable area of both attractions and accommodations that serves regional tourists. Its key features include the following: •

El Toad is located outside agricultural and antiquities lands. Development on the plateau can be oriented to capture the dramatic views of the Nile River Valley and distant Necropolis.



Development through the 2017 period should occur on the southern plateau, which can be strongly linked to the proposed Cruise Ship port. In the more distant future, assuming that monument capacity constraints are met, there will be the potential for future touristic zone development on the nearby plateau to the north.



Approximately 18 hotels, with a total of 4,500 rooms are planned for the twenty-year period. Accommodations will vary in quality and type, including three, four and five star hotels and villa complexes.



The El Toad plan is coordinated with the new cruise ship port development in order to create an integrated tourism zone that promotes more joint cruise-hotel stays and improved connectivity.



Attractions, such as an 18-hole golf course and botanical garden, are incorporated into El Toad in order to broaden the types of tourism experience possible in the Luxor Region.



An inter-modal transportation facility is built at the intersection of the inter-regional highway and the El Toad entrance road, adjacent to the new cruise ship port. The facility becomes the primary transfer point between water and surface transportation in the area.



A road between El Toad and New Luxor is eventually developed to provide a direct connection that bypasses local area settlements.



Regular shuttle bus service is established to provide convenient access between the cruise ship port, destinations within El Toad, and regional destinations on the East and West Bank.



A visitor center with museum interpreting regional local life customs is built along the formal entrance boulevard to El Toad. The visitor center also serves as a staging point for shuttle bus service within the El Toad area and tour bus traffic to regional destinations.

Elements A collection of 18 hotels and villas with approximately 4,500 rooms will locate in the El Toad Tourism Zone. Accommodations will vary in design and scale. Hotels will cluster at the entrance and along portions of the loop road. The highest quality hotels will likely locate in the northwest portion of El Toad with views to the Nile and Necropolis. The four hotels that locate in the El Toad Center at the entrance to El Toad will be integrated with the surrounding shops, entertainment and services to create an active environment that is distinct from the more secluded

18

Creation of an Open Museum and Heritage District in Luxor City, Egypt hotel developments along the golf course. Additional variety is offered through low-rise villa developments that locate along attractive narrow roads winding through the lushly landscaped golf course. All hotels and villa developments will offer on-site recreation and service amenities that vary in amount and quality between the three, four and five star developments. Shared resources within El Toad will include recreation, cultural and entertainment, public facilities and transportation. Scattered between three areas within the tourism zone are shops, restaurants and cafes. Commercial uses will be integrated with associated cultural, entertainment and public service facilities. Upon the completion of the cruise ship port, additional commercial businesses may locate there. Cultural and Entertainment The El Toad Center will include facilities to serve both hotel guests and visitors. A lively atmosphere will be created through clustering together facilities, such as a cinema, theater, nightclub and multi-purpose hall, with the commercial shops located in the Center. The El Toad Center should also includes a museum with exhibits on the Luxor region’s history and local customs and traditions, which could be integrated with interpretation of the commoner tombs area which is adjacent to the Center. A visitor center will offer regional information and serve as an entry point to the botanical garden and transfer point for bus tours of the nearby Commoner Tombs and El Toad Temple. Public Service Facilities Also located in the El Toad Center will be public facilities, such as a post office, police station and fire station, that service the entire tourism zone and nearby cruise ship port. Transportation Facilities In order to create an efficient circulation system that provides connections within the tourism zone and regionally, an intermodal facility will be sited near the intersection of the El Toad entrance road and the Cairo-Aswan Highway. Adequate parking and staging areas will be provided for the El Toad shuttle, regional coaches and rental cars. Located adjacent to the new cruise ship port, the inter-modal facility will also become a good transfer point between water and surface transport. Easy transfer between buses and shuttles to water taxis, ferries and cruise ships will be possible. Connections and Circulation Planned transportation improvements in the area will further strengthen El Toad’s exceptional regional access. The airport is easily accessible via the Cairo-Aswan highway that runs along the edge of the El Toad, while cruise ship traffic will arrive at a large new port that is integrated into the development, thereby increasing the number of tourists combining hotel/cruise tours in the region. An inter-modal transportation facility that serves both El Toad and the cruise ship port is an opportunity to link the two areas and provide convenient transportation connections to tourists. Access from El Toad to attractions in Luxor City and the West Bank will also be convenient. Travelers to Luxor City will use the Cairo-Aswan highway and the El Awameya Road connecting to the Corniche, while travelers to the West Bank Necropolis will be well served by the Luxor Bridge located just two kilometers from El Toad.

19

Creation of an Open Museum and Heritage District in Luxor City, Egypt Within the El Toad Tourism Zone, circulation will be served through an attractively landscaped loop road that winds through the development. Shuttle service will be provided along the loop road to serve traffic going between the cruise ship port, hotels and commercial nodes of activity throughout the El Toad Zone. The entry sequence into El Toad would be along an attractively landscaped road running between the Cruise Ship Port, across the railroad tracks and up a steep grade to the El Toad Center. The Center’s collection of shops and services includes an information center that also serves as a shuttle bus transfer point for reaching hotel and villa development areas and nearby attractions, such as the Commoner Tombs and El Toad Temple. The formal entry road continues on to another commercial area and golf club where at that point it branches into a loop road that runs around the perimeter of the golf course to reach hotel development areas. Villa developments will located on minor roads winding through the golf course.

Project 3: Development of the New Community of New Luxor The fast growing Luxor region is expected to at least double in population over the next twenty years. In order to reduce development pressures on the historic Luxor City area and protect the agricultural zone from encroachment, the Egyptian Government has advocated the development of new settlements outside the existing urbanized area to absorb the majority of new development over the next twenty years. One new town, New Thebes, has already been started 15 kilometers northeast of Luxor City. However, with the recent completion of a Luxor Bridge and the anticipated nearby expansion of a port for cruise ships south of Luxor City, informal, unplanned development will favor the southern part of the area. It is already claiming substantial agricultural lands to the south and east of Luxor City. If a new town is not planned for in the south of Luxor City, unplanned sprawl in that part of the region is likely to result in negative consequences for the future prosperity of the region. Timely action to stem this undesirable growth is essential: an attractive new town is needed to become the magnet for new development in the Luxor region The Proposed Site The proposed site for New Luxor, south of Luxor City, east of the Cairo-Aswan Highway and the agricultural belt, is accessible and visible from the Highway, and consists of three east-west oriented plateaus, separated by wadis. It is in close proximity to the regional wastewater treatment plant, readily accessible to the new Luxor Bridge and to the proposed El Toad tourism zone which will be a major new source of jobs for the region. Intercity rail is nearby, parallel to the highway, and potential land reclamation efforts in the vicinity hold the promise of turning a portion of the desert land in the site vicinity into green cultivated property. The Vision The new city is designed to be a pleasant place to live and work, setting a new standard for development in the Luxor region with its high-quality infrastructure, open spaces, and public facilities. With an eventual population of approximately 200,000, New Luxor has the potential to emerge as the major commercial, governmental and residential location in the region. New Luxor’s attractive urban environment for an economically diverse mix of residents will make it a

20

Creation of an Open Museum and Heritage District in Luxor City, Egypt magnet for new development, thereby relieving the growth pressures on Luxor City. New Luxor can become a model for the region to show how planning in advance of development can help to create a high quality living environment. The Plan for New Luxor has been developed to achieve a livable and attractive community which takes advantage of its regional setting, incorporating the following key features: (1) The community is located east of substantial agricultural lands, insuring an attractive greenway entry. (2) Major development is located on three elongated east-west plateaus, linked with major arterial streets. (3) The City axis and City Center, on the central plateau, is oriented to the Theban Necropolis, which is the most characteristic landmark in the region and highly visible from this location. (4) Many City parks and open spaces are located on the wadis between the plateaus, providing an effective use of land and supporting green spaces to city activities. (5) Each neighborhood is conceived as a relatively independent unit, with central services, minimal through traffic, and close proximity to District services centers. (6) Early connections with New Luxor can be achieved by upgrading existing roadways, while the long-range connection to Luxor City will be provided through a new arterial boulevard which lead to the southerly growth area of the existing City. (7) The northwest corner of the City, in close proximity to agricultural lands and potential irrigation resources associated with tertiary treatment of the new waste water plant will be devoted to an agricultural village with nearby agro-processing industries, providing an initial employment base and investment rationale for the City’s growth. The Neighborhoods The neighborhood will be the foundation of the structure of New Luxor. Some 25 neighborhoods will make up the city, each supporting a population between 8,000-10,000. Although the form and character of each neighborhood will vary, a number of shared principles will guide development: (1) Neighborhoods are envisioned as building blocks that can be phased to accommodate gradual development. Each neighborhood will include housing clusters that are within a 500-meter radius from a neighborhood service center. (2) The neighborhoods are envisioned to include a variety of house types and sizes to meet the needs and preferences of a broad range of residents. (3) The economies of low-rise construction and the constraints of the desert environment influence dwelling design to be low in height and dense with respect to ground coverage in order to provide shade and minimize irrigation. Single -family attached and detached houses on small lots are proposed for most New Luxor neighborhoods. Average lot sizes based on income and quality of construction is consistent with new town planning standards in Egypt. The average lot sizes are only used to roughly estimate residential land area demands for 21

Creation of an Open Museum and Heritage District in Luxor City, Egypt New Luxor; further market study information will be necessary to guide the actual design of New Luxor’s neighborhoods. (4) The relatively compact residential areas in New Luxor will allow for safe access by foot or bicycle to the pedestrian-oriented neighborhood greenways, and from there to the neighborhood service centers where travel can continue by foot, bicycle or bus to district service centers. Open Spaces A network of lush open spaces through New Luxor will give it the character of an urban oasis on the edge of the desert. At the city-scale, the plan takes advantage of the surrounding environmental features. Long linear wadis will become passive open spaces articulating the urban landscape of New Luxor, a desirable amenity for residents of the new city. These same wadis will also serve to collect storm drainage during the infrequent rains. In addition to the passive open space created by the wadis, New Luxor will also contain landscaped boulevards and greenways, and a system of parks at several scales. These parks, provided at the neighborhood, district and city level, will serve as centers for active recreation. Over 150 feddan are allocated to parks and open spaces in the city. Connections and Circulation The new town will offer convenient access to the international airport, Luxor Bridge and the interregional Cairo-Aswan Highway without an immediate need for major new inter-city roads. As the community grows, two important roads will be built: a direct connection to a new southern gateway rail station in Luxor City, and a north-south road along the edge of the agricultural belt to link New Luxor to the El Toad tourism zone to the south and strengthening the connection to the airport, northeast of the new city. In the city itself, reserving rights-of-way in advance of development will ensure a comprehensive and integrated street network. Both major and minor streets will be planned to provide for the adequate circulation of private vehicles, buses, and other transportation modes. Streets in New Luxor will be classified according to function and designed for each functional classification. Local streets, designed to provide access to each residence, will have very low traffic volume. Higher volume neighborhood service streets form loops and provide the principal routes for deliveries and service to neighborhood centers. Collector streets run through district centers, intercept traffic from neighborhood streets and feed into the arterial network which runs along the perimeter of each district center. The arterial streets, forming a continuous network connecting each district center to the city center as well as regional destinations, provide for the rapid movement of high volumes of traffic over relatively long distances. An east-west boulevard will be the major point of entry for traffic from the new road linking New Luxor to Luxor City. With a right-of-way to accommodate four lanes of traffic, shoulders, and a linear park, the boulevard will become an attractive entrance to the New Luxor City center. Buses will run the length of the city center boulevard and provide the major means of public movement within the center while inter-connecting the city center to other citywide public transportation routes. The mall-boulevard will become a strong axis through the center of New Luxor, offering striking views of the West Bank Necropolis. Continuous pedestrian arcades along the boulevard provide a shaded walking environment adjacent to the mall through the city center

22

Creation of an Open Museum and Heritage District in Luxor City, Egypt area. As an open space feature connecting a series of urban spaces in the city center, the central boulevard has the potential of becoming a promenade for New Luxor residents, similar to the role of the Corniche in Luxor City. An exclusive system for pedestrians and cyclists is provided through the local greenways that connect neighborhood centers. Pedestrian and bicycle traffic is also accommodated along the collector system roads. Animal drawn cart traffic is minimized in New Luxor through establishing produce and livestock market areas in the northwestern portion of the city that intercept traffic from the surrounding agricultural lands before it enters New Luxor. This investment project, described in the present document, projects the needs of New Luxor, the El Toad tourism zone, and the new cruise ship port in terms of infrastructure (water, wastewater, transportation, energy, and telecommunications). It uses these demand forecasts as basis for assessing the investment needs in infrastructure facilities, focusing on opportunities in these sector for private sector participation.

Project 4: Infrastructure Services for New Luxor and El Toad This investment project forecasts the needs of New Luxor, the El Toad tourism zone, and the new cruise ship port in terms of infrastructure (water, wastewater, transportation, energy, and telecommunications). It uses these demand forecasts as basis for assessing the investment needs in infrastructure facilities, focusing on opportunities in these sector for private sector participation.

Project 5: Establishment of High-Value Agriculture High-value crop production and are agro-processing industries are key elements in the strategy to meet contemporary needs of Luxor residents. There is substantial poverty in Luxor, despite the appearance of wealth because of the tourism industry. The majority of Luxor residents depend on small agricultural plots (the average plot size is a modest 1.84 feddan) to sustain their families. These agricultural families have substantial needs to expand agricultural lands to support future generations and to increase household incomes to improve their standard of living. Reclamation of substantial lands in Luxor is essential for the growing population. Introduction of high-value agriculture and agro-processing will provide a means for farmers to improve their futures.

Project 6: Development of the Open Museum and Heritage District in Luxor City This investment project is described in this document.

2.4 Indications of the Egyptian Government's Commitment and Ownership

23

Creation of an Open Museum and Heritage District in Luxor City, Egypt The Government of Egypt recognizes that tourism is one of the country's primary engines of growth, and tourism development is one of its highest priorities. Government economic programs and plans emphasize the importance of investment in the sector, and Government commitment to infrastructure improvements and environmental protection is essential in the context of tourism. Although in the past the Government invested directly in the sector, it has been gradually retreating from this role, leaving investment in tourism related projects to the private sector. For example, the Government already has sold much of its interest in hotels and guesthouses and lifted the monopoly of a tour bus company. The following steps have also been taken: •

The Government has accorded the Higher Council for the City of Luxor (HCLC), as an authority with a mandate to enforce land use plans, protect and manage the environment, and coordinate with other Government and private sector entities.



The Government has declared significant sections of Luxor a protected area with special regulations.



MOT is continually reviewing, modernizing, and consolidating the regulations governing tourism.



For the tourism sector in Luxor, the Government has assigned three principal ministries including the MOC/SCA, MHUUC, and the MOT to oversee project implementations, supervise implementation of tourism policy, propose laws and regulations, approve the establishment of training centers and set up programs and institutions for their operation, and establish licensing.



As a major step toward ensuring proper coordination among MHUUC, SCA, HCLC, MOT, the private sector and the local population in the development of Luxor, the Government has established a Steering committee (Fast Track Working Group) with a clear oversight mandate.

24

Creation of an Open Museum and Heritage District in Luxor City, Egypt

3.0

The Project

3.1

Precedents for the Open Museum and Heritage District Concept

There are many cities where a special district has been delineated within which government initiatives have been enacted to accomplish improvements in urban conditions as well as to take advantage of expanded cultural activities and tourism. However, most of these projects deal with a limited number of the multiple problems and resource types that are represented in Luxor City, which includes major antiquity resources, significant archeology, museums, tourism needs, residential population, and interaction with a functioning central city. In the Medinah of Tunis, as an example, which is one of the most significant of the 15 such traditional districts on the UNESCO World Heritage list, the housing in the Hafnia Quarter has been rehabilitated. This project successfully used public/private partnerships, including World Bank support to arrest residential deterioration and to achieve rehabilitation of over 9,200 square meters of residential space and addition of over 400 new housing units. This project emphasized residential elements somewhat comparable to those found in Luxor. A recent effort that dealt with expansion of museum and cultural activities is in Bilbao, Spain, where the construction of the new Guggenheim Museum has created a major tourism magnet. This facility has been so successful that it has been accompanied by significant revitalization of the central city, including private reinvestment, changes in traffic to reserve portions of the district for pedestrian use, and overall environmental improvements. The project most comparable to the type of district proposed in Luxor is found in the U.S., with the improvement of Washington, D.C.’s Pennsylvania Avenue. Pennsylvania Avenue is the ceremonial boulevard that connects the U.S. Capitol and the White House, location of the presidential inaugural parade and a significant venue for important public and private institutions within the United States capital city. This project is similar to the Luxor project in that its spine is at a ceremonial scale and unites a major historical facility, or anchor, at each end. Additionally, it supports reuse and revitalization strategies to deal with the area surrounding the In 1972, the United States Congress created the Pennsylvania Avenue Development Corporation (PADC) to prepare and implement a plan to improve an historic district that incorporates the Avenue and numerous public and private properties within the defined district. Comparable in length to the Avenue of the Sphinxes, Pennsylvania Avenue and its surrounding district had become deteriorated and required significant public intervention in order to take advantage of its private investment opportunities and to protect its ceremonial and cultural value to the nation. In these respects, the definition of the Pennsylvania Avenue district and the assignment of special powers and capabilities to the PADC are somewhat comparable to what is proposed for the Open Museum and Heritage District. The PADC’s role, as defined by its enabling legislation and supported by appropriations from the U.S. Congress, included public development, public area improvements and historic preservation, as well as support to land acquisition as required to implement the PADC’s plan. The sources of PADC’s funds include direct federal appropriations, borrowings from the U.S Treasury, proceeds from the sale and lease of real estate, and donations. In 1987, when PADC was substantially engaged in implementation of its 1974 plan, its programs were estimated to require a total net total

25

Creation of an Open Museum and Heritage District in Luxor City, Egypt public investment of $130 million that was projected to attract over $1.7 billion of private investment. Subsequent to this benchmark, PADC managed the successful public -private development of the “Federal Triangle” development, a public -private venture that resulted in the second largest building in Washington, second only to the size of the Pentagon, resulting in construction of approximately 3 million square feet. The PADC’s projects have included public parks and spaces, street landscaping, and other public improvements along the entire length of the avenue.

3.2

Project Development Objectives

3.2.1

Conserve & Enhance the antiquities and their settings

The antiquities of Luxor attract visitors from around the world, contributing substantially to the region’s economy. It is imperative that the strategy for regional growth incorporates realistic measures to protect these antiquities and their settings from damage, deterioration, and encroachment. The monuments, including Karnak and Luxor Temple, need a careful assessment of required improvements and monitoring of patterns of visitation to insure that over-use does not damage these settings. Additionally, urban growth in the vicinity of Luxor’s antiquities threatens the integrity and setting of the historic resources. In the Karnak Temple vicinity informal settlements have developed over historic sites and urban drainage has caused foundation settlement at the ancient temple columns. It is important that the plan for the Luxor Open Museum and Heritage District incorporates measures to mitigate and, eventually, eliminate these sources of deterioration to Luxor’s treasures. Further, tourists and visitors should be encouraged to appreciate the fragility of these enduring sites and to respect their character.

3.2.2

Guide sustainable public and private investment in the Luxor City Open Museum and Heritage District

It is not just the antiquities in Luxor that are culturally significant. The old section of Luxor City has architecture representing different periods in time and winding, quaint streets. The intermingling of Islamic and Coptic cultures are reflected in the architecture and vibrancy of the old section. The old section of the City offers a dynamic backdrop for the antiquities. It is also a transitional area that separates the modern city (with rather mundane architecture) from the antiquities area. Improvements to the old section of Luxor City will serve residents, while expanding the total experience for tourists in Luxor. Preservation actions are needed immediately. The intriguing charm and character of the old section is threatened as historic buildings are torn down for new construction and old facades on existing buildings are replaced with non-traditional architecture incompatible with the older buildings. Physical improvements, including new developments, are needed to improve the attractiveness of the area. Additionally, visitor information and interpretive materials area needed for tourists to understand or appreciate the architecture and setting.

26

Creation of an Open Museum and Heritage District in Luxor City, Egypt

3.2.3

Coordinate visitor and tourism services

Tourism is an important part of Egypt’s economy, representing revenues of LE 10,200 million (US $3,009 million) in FY 1995/96 and projected to increase substantially as political stability restores confidence in Egypt as a destination. Tourism is encouraged as a major component in the Government of Egypt’s (GOE) strategy to alleviate poverty and provide for a population that is expected to nearly double in 20 years, from 60 million persons to over 100 million persons. Without economic growth, that corresponds to, or exceeds, population growth, the nation will become relatively poorer over time and political stability would be threatened. Without political stability, the world’s access to the valued antiquities in Egypt would be similarly threatened. Luxor, in particular, has a local economy based primarily on tourism. In planning for the growth of tourism, it is essential that the City, with assistance from the Government of Egypt and international entities, create opportunities for tourism facilities and services that will both enhance the quality of the antiquity sites. This effort should also provide visitors with contemporary services which are competitive in a world where international interest in cultural tourism is a major growth factor.

3.2.4

Improve the urban environment to create a city core which can reflect the aspirations and needs of current and future residents

Protection of the monuments and accommodation of tourists are important goals to be accomplished, but a truly effective plan for the Open Museum and Heritage District must result in an improved quality of life and increased potential for the residents of Luxor, current and future. Municipal services, particularly utilities, are not uniformly available to city and village residents, and unplanned growth accentuates problems of accessibility, transportation, and proximity to services.

3.2.5

Increase municipal and institutional capacity to manage the protection and future development of the Open Museum and Heritage District

The scale of development which will be required to implement the Luxor Plan will offer potential opportunities in development management, planning, as well as related building and construction services. Without a cadre of skilled professionals and technicians to manage this long-range process, its success will be tenuous. To achieve the benefits of an extensive planning process, the Plan needs to incorporate effective mechanism for implementation. These mechanisms need to insure that all levels of Government within Egypt and the HCLC act in concert and in response to the creation of a Open Museum and Heritage District. Additionally, the implementation process must include explicit and effective measures to fully engage the private sector, which will provide a significant amount of the capital and energy for implementation. Without these types of coordination and cooperative mechanisms, the Open Museum and Heritage District Project, no matter how worthy, will not attract the full support and participation of either the local community or the international donor agencies.

27

Creation of an Open Museum and Heritage District in Luxor City, Egypt

3.3

Project Components

3.3.1

Coordinate Open Museum and Heritage District Improvements

The Luxor Open Museum and Heritage District contains four areas with common characteristics and needs. As described in the following sections, the sub-areas provide a focus for the implementation strategy. Figure 13 identifies the boundaries for the seven areas: 1. Monument Protection Area – this area is defined by Luxor Temple and the Karnak Temple site, and will include the connecting Avenue of the Sphinxes to be excavated and restored. 2. Neighborhood Preservation Area – this area is located between the Avenue of the Sphinxes and the Corniche, from Karnak Temple to Pola Hotel Street. The area is a traditional, active neighborhood with an older main street, mosques, residences, and other neighborhood services, with relatively few tourist services or uses. 3. Central Luxor Area – this area consists of the districts immediately to the east and to the west of the proposed Avenue of the Sphinxes corridor, between the Airport Road and up to the southerly edge of Luxor Temple. 4. Central Corniche Area – encompassing the largely undeveloped section of the Corniche between the entrance to Karnak Temple in the North and the Winter Palace in the South. 5. North Karnak Development Area – encompassing a traditional village and a largely undeveloped area north and northeast of Karnak Temple, the area is proposed as a managed residential growth area for an additional 10,000 residents. 6. North Corniche Development Area – The area is presently characterized by a largely undeveloped riverfront and scattered commercial development along the extended Corniche Road. Lacking any historic buildings, but offering a prime location close to the historic core of Luxor City, the area is to accommodate tourism-oriented infill development at a density and scale greater than other portions of the Open Museum and Heritage District. 7. No Utilities or Service Area – Informal residential developments are steadily encroaching on Karnak Temple’s eastern edge. In order to prevent additional construction, no services or utilities will be provided to structures in the area.

3.2.2

Conserve the antiquities and enhance their settings

The highest priority for the Monument Protection Area of the Open Museum and Heritage District is on preserving the antiquities and their settings. Within the Monument Protection Area,

28

Creation of an Open Museum and Heritage District in Luxor City, Egypt no private buildings or improvements would be allowed and priority would be given to archeological and preservation efforts. Public improvements would be allowed which are necessary to accommodate visitors to the monuments, including design of visitor improvements and facilities which can be sited and designed to positively contribute to the historic setting. Provide Ongoing Maintenance and Preservation of the Monuments Almost all tourists visiting Luxor experience Karnak and Luxor Temples. At the current level of tourism, these sites are already becoming overcrowded and the projected volume of future tourists magnifies the prospects for gradual deterioration. Problems, including vibrations, jeopardize the foundations and structural underpinnings, while airborne pollution is causing damage to the stone carvings. In addition, the rising water table has caused a salinity and drainage problem, resulting in the foundation settlement of the ancient Karnak Temple columns. Key proposed actions: • coordinate ongoing maintenance efforts, including the work of restoration experts, antiquities site managers, and labor personnel. • initiate mitigation measures to tackle the environmental sources of deterioration Improve the Luxor Temple Setting Luxor Temple’s urbanized surroundings limit the scale of contextual improvements. Busy streets surround the Temple on three sides, leaving no opportunity to create a larger buffer area. The Avenue of the Sphinxes restoration, however, offers an exceptional opportunity to create an open space connection that can be linked through appropriate landscaping and lighting to the popular park area that exists east of the Temple. Entries on the north and west side of the Temple should also be improved. The north entrance will be integrated with the Avenue of the Sphinxes project, while the redesign of the western entrance should include a pedestrian crossing across the Corniche, defined by paving stones, to the riverfront. Across the Corniche, a promenade should be built out into the Nile River, as portrayed in historic illustrations. Key proposed actions: • improve the physical condition and approach to the north and west entrances to the Temple • improve the landscaping of the park on the east side of Temple • improve the perimeter lighting and introduce additional streetscape features, including benches Improve the Karnak Temple Setting Karnak Temple is the largest and most significant pharaonic temple in the world. Along with the Temple of Mut immediately to the south of Karnak, the temple area occupies an area far larger than Luxor Temple. Surrounding the temple areas are residential neighborhoods, low-scale tourist shopping areas and a few public and private buildings extending from the temple to the Nile. Each sub-area of the Karnak Temple area requires different actions in order to enhance the character of the area: Create a Karnak Buffer Zone Much of this area is either owned or controlled by the Supreme Council on Antiquities. However, there has been significant encroachment of informal and other development within this zone, requiring protection measures to protect the visual quality of the site and to respect its his resources.

29

Creation of an Open Museum and Heritage District in Luxor City, Egypt

The proposed Karnak buffer area, as mapped in Figure 3, contains Category 1 and Category 2 important archaeological zones 1 around Karnak and Mut Temples. Because of the significance of the setting, test excavations should be done to determine the location of artifacts and identify which structures should be removed. Immediately east of Karnak Temple is a proposed buffer zone that will not have utility service and no future development will be permitted. Although large-scale building acquisitions will not occur, current residents will be offered new housing with utility service in the North Karnak Planned Development Neighborhoods immediately north of the area as an incentive to relocate. The existing road running along the north and east side of Karnak Temple should be removed so as to discourage future development along it. The road corridor should be replaced by a landscape treatment by an earthen wall to define the immediate edge of Karnak and Mut Temple. Key proposed actions: • conduct archaeological work in Karnak and Mut Temple areas • construct an earthen wall around Karnak Temple perimeter Create a Processional Way between Karnak Temple and the Nile River The historic linkage of Karnak Temple to the Nile is important to restore as a way to portray the significance of the relationships between the temples, Nile, and Theban hills. Early actions to recreate the processional way include moving major parking out of the field of view, relocating the SCA director’s house and SCA storage lot, and defining areas for visitor support services, including overview interpretation near the temple entrance. Later actions include the introduction of historically accurate landscaping and statuary along a 170m long reflecting pool (quay) that reinforces the axis and view of the Nile. The design of the quay should be inspired by the design of the ancient canal connection between Karnak Temple and the Nile. Key proposed actions: • relocate coach parking and the SCA storage lot to designated sites north and south of existing area. Visual screening of the relocated parking through additional landscaping and a low rise wall with an aesthetic facing. • build the quay and its associated plaza between Karnak Temple and the Nile, including appropriate landscaping, lighting and street furniture to create an active, convivial gathering space.

3.2.3

Preservation and Enhancement of the Open Museum and Heritage District’s Old Sections

Improve and Expand the Souq The old market area along Market Street, called a souq or khan, has special need for action. Located one block east of Luxor Temple, there is little traditional image evident in the old souq and 1

Archaeological classifications are the priority protection areas receive under Egyptian law; five categories for antiquities areas with one being the most significant

30

Creation of an Open Museum and Heritage District in Luxor City, Egypt no defined entranceways to draw tourists into the area. Presently there is also limited protection from the sun, so tourists are reluctant to shop during hot afternoons. Although shops (bazaars) stay open late at night, many tourists retire early to meet morning tour schedules. East of the Avenue, the opportunity should be taken to improve and extend the traditional city shopping souqs, improving their quality and enlarging pedestrian-preference zones within the city. These extended souqs should connect, by walkways, across the Avenue of the Sphinxes to link with shopping within the area between the Kebash and the Corniche. As described in a later section, vehicular traffic should be managed and limited, emphasizing services to uses within the area and enhancing a sense of a tourist district oriented to both the Kebash and the Corniche A number of low-cost improvements and architectural guidelines can significantly improve the attraction of the traditional souq. These measures will also serve to protect the old section from modern redevelopment because its value as a traditional area will have been firmly established. An excellent example of a world famous souq to emulate is Khan El- Khalili in Cairo, including the adjacent old sections of the city. The Khan Khalili and adjacent areas are very quaint, narrow streets are sun-screened in permanent and daily retractable awnings, and the building facades have a traditional flair. Key proposed actions: • offer preservation grants to assist business owners to restore or replicate historic facades • extend the existing souq north to the Airport Road through improving the street and encouraging commercial infill construction. • introduce new signage, graphics, and lighting to reflect the historic character of the area • introduce attractive, theme (replicating period architecture) vendor stalls to accommodate street vendors • introduce retractable canopies over streets for afternoon shade • create gateway entrances to define the souq Improve the Karnak Village Area The neighborhood immediately to the southwest of Karnak Temple is in serious need of improvement. Housing is severely deteriorated, public facilities are lacking and sanitation is poor; a swale running alongside the central road is used as an open garbage pit. Although the edge of this neighborhood may be somewhat impacted by restoration of the Avenue of the Sphinxes, the general form and character of the remainder of the neighborhood should be preserved, with new uses limited to residences and neighborhood support uses of limited height and of traditional character. This should not evolve into a major hotel or tourist-oriented district. A number of improvements can be made to insure that the neighborhood is strengthened. Health and sanitation improvements will be made through the Secondary Cities project. Other improvements to be made include selected demolition and housing infill, and new public facilities, including a health clinic, school and park. Key proposed actions: • repair structures and infill empty blocks with housing • introduce new public facilities, parks, and open space

31

Creation of an Open Museum and Heritage District in Luxor City, Egypt •

extend utilities to area (as provided through USAID’s Secondary Cities Project)

Coordinate relocation in the Karnak Buffer Zone with additional residential development in the Karnak Development Area Planned Development Neighborhoods, as described in detail in Section 3.3.1, are an integral component of Luxor City improvements. One of the Areas, The North Karnak Development Area immediately north of the Karnak Temple area is one of four proposed new residential development areas in Luxor City. Located along the northern edge of the city, the North Karnak Development Area is bounded by a canal on the north, the railroad tracks on the east, agricultural lands on the south and development on the west. Agricultural lands and older settlements, including a traditional neighborhood characterize the area. New scattered settlements are beginning to encroach on the northern border of the Karnak Temple. The North Karnak Development Area is planned to accommodate approximately 10,000 new residents by 2017, although the amount of new development may exceed this number if residents living within the protected area surrounding Karnak Temple elect to relocate to the area. Through providing utilities, services and open spaces, this neighborhood will be attractive to residents in areas along the Avenue of the Sphinxes or immediately adjacent to Karnak Temple to relocate there. A perimeter road to connect the North Karnak Development Area to the North Corniche Area to the west and the Airport Road in the east will be built to serve the area. By placing the road just west of the railroad corridor and just south of a major canal, the road will discourage informal settlements from occurring in agricultural lands outside the city boundary. Local streets will run from the perimeter road to housing areas, however, a collector system will not be developed in order to discourage additional encroachment on the Karnak Temple area. Create a North Corniche Development Area to accommodate future tourism-oriented commercial development The area is presently characterized by a partially undeveloped riverfront along with a collection of tourism-oriented commercial buildings and vacant parcels along the extended Corniche Road. Lacking any historic buildings, but offering a prime location close to the historic core of Luxor City, the sub-area is proposed to accommodate tourism-oriented infill development at a density and scale greater than in other portions of the Open Museum and Heritage District. The development area will be mixed-use in character with strong physical and visual connections along the Corniche towards the Nile and Karnak Temple.

3.2.4

Effectively use public lands and redeveloped private property within the historic district to accommodate increasing tourism

The restoration of the Avenue of the Sphinxes and increasing tourism activity in the Open Museum and Heritage District will create a significant opportunity to improve the Luxor setting between the two temples and the river. As illustrated in Figure 13, the Central Luxor Development Area will comprise the area on both sides of the Avenue of the Sphinxes corridor,

32

Creation of an Open Museum and Heritage District in Luxor City, Egypt between the Airport Road up to the southerly edge of Luxor Temple . This section of Luxor City is to be the most transformed by the creation of the Luxor Open Museum and Heritage District. Redevelop select government properties To the west side of the Avenue of the Sphinxes, the area is characterized by many public sites that are or will be functionally obsolete. Many of these uses could be relocated to other regional growth locations such as New Luxor. Between Luxor Temple and Karnak Temple there are sixteen Government properties, many across from the Nile. There are another ten Government properties situated just south of Luxor Temple. Some of these buildings are architecturally significant or cannot be relocated, e.g. the National Democratic Party building, the Winter Palace, Convention Center and the Luxor Museum. Other buildings have no distinguishing characteristics and are candidates for redevelopment. These sites include primary, secondary and technical schools, the Higher Council for Luxor City (HCLC) Administrative Headquarters, Hospital, General Organization for Roads and Bridges Building, and the Luxor Sports Club. Options for redevelopment of government buildings are varied. For example, the vacant Government building on Nile Street and adjacent schools, across from the Novotel Hotel and Winter Palace, is an excellent candidate site for infill commercial development. The HCLC Headquarters, Hospital, site containing three schools and the General Organization for Roads and Bridges building, and the Supreme Council on Antiquities compound are all very large sites that can accommodate museums, and tourism-oriented commercial uses. The Luxor Museum and Convention Center are two important public uses within this western area which could be expanded and/or remodeled. Key proposed actions: • relocate government offices and public facilities • undergo site preparation for redevelopment • redevelop sites with buildings of an appropriate scale and construction • make open space improvements Encourage new development on identified vacant land Creation of a road running along the eastern perimeter of the Avenue of the Sphinxes will involve the widening of and connection between existing streets. Inevitably, the project will require removal of some existing structures that will support rehabilitation and new infill construction along these edges. The new East Bank Visitor Center would be located in this area, adjacent to the current inter-city bus station. New infill construction can be encouraged along the edges of abutting streets for retail uses, tourist developments, and visitor services. The Avenue project can create an opportunity to create linkages to the traditional existing souqs as well as expansion of the retail district and new venues for expanded tourist activities. Existing substantial hotels in this area would remain, although priority would be given to new museums, museum expansion, and new parklands to serve a setting for the antiquities. Limited new hotel and tourist support activities could be encouraged in this precinct, if planned to insure adequate public access and surrounding green space. Key proposed actions: • undergo site preparation of vacant lands for redevelopment

33

Creation of an Open Museum and Heritage District in Luxor City, Egypt • •

redevelop sites with buildings of an appropriate scale and construction make open space improvements

3.2.5

Enact Land Use Controls and Development Guidelines to Support Preservation and Redevelopment Efforts

A strong priority should be placed on enforcing land use controls and development standards to ensure that new and rehabilitated construction within the District is consistent with the character of its historical resources. The following paragraphs describe tools by which a Luxor Preservation and Development Authority (PDA), as described in detail in Section 4.1.3 can guide the preservation of historic resources and the introduction of new infill buildings of a compatible scale and finish to the Open Museum and Heritage District. Tools to guide the preservation and redevelopment of the Open Museum and Heritage District: • historic preservation standards • land use controls • development standards for new construction • urban design guidelines for construction in designated Open Museum and Heritage District development areas Historic Preservation Controls Preserving and restoring the architecture that has been developed over the past century in Luxor City is an investment for tourists and residents alike. In order for this to be accomplished, the PDA needs to be authorized and directed to implement preservation controls. The controls would not prohibit redevelopment of selected properties, but would provide that all exterior changes to existing buildings and new construction conform to guidelines that reinforce the architectural style of the area, while also ensuring that properties of historic significance are not demolished. A PDA “historic preservation committee” should be established to protect and preserve architectural character and integrity and to preserve the physical character of streets and buildings in the Luxor Open Museum and Heritage District. The PDA “historic preservation committee” would review all proposals for additions or changes to designated historic structures in the Open Museum and Heritage District. After further developing the guidelines put forward in this report section, the PDA committee would be responsible for reviewing applications for designation of historically significant structures. Designation of a property as historically significant would enable the landowner to receive facade improvement grants with the trade-off being that any changes to the exterior of the structure would require a permit by the PDA. Any proposed exterior changes, including alterations and additions to the building facade, the installation of signs, and/or the addition of awnings and fencing would require approval of the PDA “historic preservation committee.” Buildings designated as historically significant would be required to conform to the following management guidelines. Conformance to these guidelines should be the primary criteria by which the “historic preservation committee” selects property owners to receive preservation grants:

34

Creation of an Open Museum and Heritage District in Luxor City, Egypt 1. Try to use the building for its original purpose or for a compatible use requiring minimal changes. 2. Retain and preserve original distinguishing features and qualities. 3. Recognize all buildings and structures as products of their own time, avoiding changes that have no historical basis. 4. Recognize and preserve changes that have occurred over time if they have significance in their own right. 5. Retain and preserve distinctive stylistic features or examples of skilled craftmanship that characterize the building or site. Restoration work to historic buildings should be done in traditional materials and be visually unobtrusive. 6. Repair rather than replace worn architectural features. If replacement is necessary, new material should match the old in all visual qualities and should be based on factual historic data. 7. Assure that details, fixtures and materials used for restoration and alteration and improvements are compatible with the historic or traditional character and materialsexamples include service modifications and additions to traditional neighborhoods and structures 8. Clean facades using the gentlest means possible. Avoid sandblasting. High water pressure or other damaging methods should not be permitted. 9. Protect and preserve archaeological resources affected by or adjacent to the historic building. 10. Compatible contemporary additions of alterations are acceptable if: • they do not destroy significant historical, architectural, or cultural material, and • the design is compatible with size, scale, color, material, and character of the structure 11. Supervision should ensure that no destruction is caused to historic materials by alteration and modification projects 12. Visual impact of improvements, restoration and modifications to be as subtle as possible

Guide appropriate land uses in the Open Museum and Heritage District Development Zone In addition to establishing a historic preservation controls, the PDA should also enact land use controls and development standards for the Open Museum and Heritage District to ensure that new construction is compatible with the scale and character of the existing features of the District. Proposed land use controls and development standards for all of Luxor City, including the subareas of the Open Museum and Heritage District are identified in Tables 1 and 2. Figure 13 illustrates the boundary of each sub-area. Permitted Land Uses in Luxor City: Table 1 describes permitted land uses for Luxor City sub-areas. New construction must conform to the land use categories, with existing construction exempted from meeting the standards. Land uses not identified in the table must submit application for special permit. Across the top row of each table, sub-areas within each jurisdiction are identified. The left column of each table itemizes land-uses classified into four categories. The first category of

35

Creation of an Open Museum and Heritage District in Luxor City, Egypt residential land uses includes single -family and multi-family dwellings. The second category of commercial land uses includes offices, services and retail businesses. The third category of public land uses includes public and cultural facilities, government offices, and open spaces that are publicly owned and operated. The final category includes other land uses, with most of these land uses requiring segregation from the other land use categories. Luxor City land uses are separated into the sub-areas within the Open Museum and Heritage District and other city areas. Land uses within the six Open Museum and Heritage District subareas are significantly more restrictive than in any other area of study in the Luxor region. Development Standards Table: Development standards can ensure a safe and sanitary environment in Luxor City that sets a reasonable standard of architectural design. Performance standards, rather than material and construction specifications, are offered for each sub-area in order to stimulate innovative design and promote the use of new materials. Table 2 describes performance standards for new development in Luxor City, including the subareas of the Open Museum and Heritage District. Only new construction in these areas must conform to the development standards prescribed. Existing construction is exempted from meeting the standards, although major rehabilitation to existing structures, defined as investment over 25% of total property value, shall be reviewed to insure that standards are met, if feasible. Aspects of development included in the standards are building coverage maximums, open space minimums, building setbacks from the street and adjacent structures, building heights, minimum street frontage, and sidewalks. These aspects cover the required specific regulations identified in MHUUC guidelines. Implementing the Land Use Controls and Development Standards: Procedures to implement the land use controls and development standards for the Open Museum and Heritage District must include design review and inspection. Design review of each development project (public and private) should be a necessary prerequisite to project approval and subsequent construction. This review and approval should be the responsibility of a “design review committee” , with the majority of members drawn from PDA staff with additional representatives from the community, appointed by the Governor and representing individuals knowledgeable about real estate, design, and/or community development. This committee should meet as often as necessary to avoid delay in the implementation of development projects. Inspection of construction to ensure compliance with approved plans should be the responsibility of PDA specialists in design and construction. Architectural and site design standards should be developed from the framework prescribed in Tables 1 and 2. All of these controls could be organized into a single manual which clearly and concisely describes both performance standards and review procedures. A supplementary manual on house design and construction could also be prepared with illustrations and simplified text to guide the self-help house owner in expanding his dwelling.

36

Creation of an Open Museum and Heritage District in Luxor City, Egypt Table 1: Permitted Land Uses in Luxor City * Open Museum and Heritage District Monument Protection Area Sub-Area Residentia

Central Luxor Sub-Area

Single Family X Multi -Family X Commerci Commercial Office X General Retail X Open Market (souq) X Tourism Retail/Services X Hotel < 50 rooms X Hotel > 50 rooms X Restaurant X Cinema/ Theater X Workshop* X Public Government Office X Health Clinic X Elementary School X Secondary School X Technical/Trade School X Nursery X Religious X Museum/Visitor Center X Cemetery X Parks/Open Space P Recreation Facility X Public Utility X Other Gas Station X Engine Service/Repair X Parking Lot/Garage X Agricultural Storage X Warehouse/Storage X Manufacturing** X Animal Husbandry X * any use not defined in chart must submit application for Legend: O = permitted land use P = by special permit only land use X = not-permitted land use

Neighborhoo d Preservation Sub-Area

O O O O O O O P O O P P P P P P P P O X O X P P X P X X X X special permit

O O P O O P P X O P O X O O O O O O P X O O P X X X X X X X

Central Corniche Sub-Area

X X P P P O O O O O P P X X X X X P O X O P P X X P X X X X

North Corniche Development Sub-Area X X P P P O O O O O P P X X X X X P O X O P P X X P X X X X

North Karnak Development Sub-Area: District Center X P O O O P P X O P O O O P O O X O X X O O P P X P X X X X

Notes: * workshops are small (

Suggest Documents