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Urban Conservation Case Study: Istanbul: Laura Dipasquale
Urban Conservation Case Study: Istanbul: Laura Dipasquale
Urban Conservation Case Study: Istanbul: Laura Dipasquale
Laura DiPasquale
HSPV621 Spring 2011
LauraDiPasquale HSPV621UrbanConservationSeminar ProfessorMason Spring2011 UrbanConservationCaseStudy:Istanbul Duringthepastcentury,theconceptofurbanconservationinIstanbulhaschanged considerably,muchasithasinotherpartsoftheWesternworld.Whilemanyoftheissuesithas facedareencounteredbycitiesandculturesaroundtheworldgentrificationanddisplacement, increasedheritagetourism,difficultieswithintegratedurbanconservationpolicies,etctheway inwhichithasdealtwiththemhasmuchtodowiththehistoryandnatureofitsgovernmental structure.AlthoughfourdifferentdistrictsinthehistoricareasofIstanbulwereplacedonthe UNESCOWorldHeritagelistin1985,erraticconservationpoliciesandlackofenforcementledtothe threatin2003thatIstanbulsheritageareaswouldbedelisted.Sincethattime,therehasbeen increasedoversightandworktowardsaddressingtheissuesthatcausedthethreat. HistoryofIstanbulandEarlyPlanning FoundedbyConstantineinthe4thcentury,Istanbulhasgrownfromasmall,fortified
elegantchurchesofConstantinople,theOttomansassertedtheirpowerbyconvertingthechurches tomosquesbyaddingminarets,definingtheskylinethatisstillevidenttoday.2 The19thcenturyinTurkeysawaseriesofprogressivereforms,knownasTanzimat,which alteredtheEasternmannerismsofthecity,andsetitonapathtowardsmodernizationand Westernization.Thesereformsanddevelopmentsincludedtheintroductionoffactories,the railroad,StockExchange,newspapers,postalservice,universitiesandschoolsofartandmedicine.In 1836,aPrimeMinisterreplacedtheGrandVizier,andin1856,thecountrypassedIstahat,which guaranteedequalrightsforallpeopleintheempire,regardlessofethnicorreligiousbackground. Theseprogressivemovements,coupledwiththeopeningoftheGalataportif1909,madewayfor increasedworldlyinfluenceinIstanbul.3 In1923,theEmpirefell,andAtaturkmovedthecapitalofTurkeytoAnkara,destroyingthe politicalpowerofIstanbulovernight.Forthenextdecade,littleurbanplanningoccurred.Inthe early1930s,Ataturkcommissionedareportontransportationgrowth,historicpreservationand zoning,whichwasneverimplemented.4In1936,AtaturkinvitedHenriProsttoIstanbultodevelopa MasterPlantobebasedontheModernistphilosophy,whichwouldmodernizeandsecularizethe cityandadaptittotheautomobile.5Thisplan,whichwasincrementallyimplementedbetween 19361950,separatedthecityintousezones:Industrial,CulturalandTourist,whichremaininplace today.InhisTouristzone,Prostcreatedanarchaeologicalpark,whichisolatedbuildingssuchas HagiaSophia,YeniCami,SultanahmetandtheTopkapiPalace,butpreservedthecityshistoric silhouette.6
thecountrywhichultimatelyimpactedthefieldofconservationinIstanbul.In1980,the InternationalMonetaryFundfinancedastabilizationprograminIstanbul,liberalizingtheeconomy. This,coupledwithapopulationboominthecityledtoashifttoexportorientedindustrializationand thedevelopmentofthetouristtrade.Duringthemid1980s,Turkeyalsosawareturntodemocracy andarestructuringoflocalgovernmentintoatwotiermetropolitanadministration.The decentralizationoffunctionswassupposedtoallowthemetropolitanmunicipalitiestodelivermore effectivepublicservices,butinreality,theplanningsystemandculturewasunabletocopewiththe hugegrowthofthecityanditssubsequentdevelopmentprocesses.8 Between1955and1990,thepopulationofIstanbulgrewfrom1.5millionto7.3million. Muchofthispopulationformedgecekondu,orillegalsquattersettlements,builtovernightwithout planningapproval.Theseinformal,illegaldevelopmentscreatedinfillbetweenthestreetsof traditionalOttomanhousesinhistoricneighborhoodsonthepeninsula.Thedevelopmentsrequired infrastructurethathadnotbeenplannedfor,andoftenresultedinthedestructionofhistorichomes tomakewayforadditionalfacilitiestocopewiththeincreasedpopulation.AlthoughIstanbulhad thepublictransportationled,conservationoriented1980IstanbulMetropolitanAreaMasterPlanin
placeatthistime,politicalpressuresawthatthesedevelopmentswereretrospectivelyregularized bymodifyingtheapprovedMasterPlan,thuseffectivelynegatingitalltogether.9 In1983,Istanbulpassedthe1983ConservationAct,whichintheorystrengthenedthe conservationcomponentofthestatutoryplanningsystem,butinpracticewaslargelyineffective. TheConservationActembodiedthegoalsoftheUNESCOWorldHeritageConvention,andin1985, theHistoricPeninsulaandfourConservationAreaswereinscribedaspartofaUNESCOWorld HeritageSite.Intheory,thisdesignationstrengthenedproceduresforlistingbuildingsand conservationareas(CAs),andrequiredthatthemetropolitanmunicipalityproducestatutory ConservationOrientedDevelopmentPlans(CODPs);however,thezoneswerenotactually designatedasCAsuntil1995,andtheCODPwasnotprepareduntil2003.10 Duetothenewmunicipalstructure,theprioritiesoftheMayorplayedanimportantrolein
illegalinfrastructureinvestmentplan,knownastheEssenPlan,constructedafourlanehighway throughthehistoricBeyogluarea,demolishingelevenhundred19thcenturybuildingsanddisplacing fivethousandpeople.Thisplanwasadoptedafteranalternativeplan,whichwouldhavehadfewer negativeconsequences,wasdisregardedbecauseitwouldhavetakenlongertoimplement.12 1980s:HeritageTourismandtheLocalEconomy Atthesametime,inthe1980s,tourismbegantogrowinIstanbul.Astheeconomicneedto findnewusesforbuildingsincreased,manyformerlyresidentialstructuresinhistoricneighborhoods wereconvertedintoboutiqueshopsorsmallhotels.Whiletheissueofthedisplacementofthepoor remained,localjobcreationhelpedtosomewhatcounteractthiseffect.Conservation,whichhad previouslybeenseensolelyasanelitepastime,wasshowntohaveapositiveimpactonurban economicdevelopment.13 Nonetheless,therewasstillnotafullrecognitionofthevalueofheritageresources,and manyhistoricstructureswerelosttothedevelopmentofthetourismindustry.TurkeysTourism PromotionActof1982createdstatesupportforthedevelopmentoftouristfacilitiesandheritage tourism,buthadtheunintendedconsequenceofallowinghighriseandskyscraperredevelopment projectswithinthehistoricareaofthecity.14Dalansplanalsoinvolvedtheclearanceofsporadic andirregularurbanareasonthehistoricpeninsulaneartheimportantheritagestructuresHagia SophiaandtheBlueMosquetomakewayforunobstructedviewsandpleasantplazas,courtsand publicparks,thusfurtherisolatingthehistoricareasfromtherestoftheurbancenter.15
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1990s:Globalization,TourismandGentrification GlobalizationandtourismacceleratedinIstanbulinthe1990s,afterthebreakdownofthe SovietUnionin1989.Inthesameyear,thecenterleftSocialDemocraticpartywoncontrolin Turkey,andanewMayorwasappointedwithnewpriorities.MayorSozenhaltedtheEssenplanand preventedlargescalecommercialredevelopmentinthehistoricareasofIstanbul.Findingitdifficult toadapttheexistingbuildingstocktomodernofficesbasedontheenforcementofstrictguidelines, manylargescaleinvestorswentnorthandacrosstheBosphorustobuildtheirnewcomplexes. Smallscaleprivateinvestors,ontheotherhand,wereattractedtothecitystraditionalCBD,and tookupresidencybothinhistoricallycommercialandinmanytraditionallyresidential neighborhoods.16 ThedemographicsofIstanbulalsochangedduringthistime,withthegrowthofthemiddle
class.Whileperipheralexpansionofthecitycontinuedwithgecekondudevelopments,theshiftin theeconomicbasefromoneofmanufacturingtotheservice/financesectorscreatedanewmiddle classwithconsumptionpatternsandincomelevelssimilartothoseinotherpartsoftheworld.17 Theirhousingaspirationsledtosignificantprivatelyfundedrenovationoftheexistinghousingstock, whichwasgoodforthehistoricfabric,butoftendisplacedthepoorresidents.Inhistoric neighborhoods,mansionsandspacioushomesthathadoriginallybeenbuiltbywealthyresidents andsubsequentlysubdividedintosmaller,overcrowdedapartments,begantogentrify,pushingout theexisting,poorerresidents.Conflictaroseoverthenatureofthisdisplacement;ontheonehand, someoftheexistingresidentswerebeingdisplaced,whichwasbad,butontheother,thehistoric fabricwasbeingmaintained,whichwasgood.18
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ThisgentrificationtookplaceprimarilyintheneighborhoodsofCihangirandGalata,butless sointhedistrictsoftheHistoricPeninsula,whichpeopledidnotbelieveweremovingupinthe market.ManybuildingownersintheHistoricPeninsula,believingtheycouldntfindeconomicuses fortheirbuildings,razedthemforparkinglots.19 In1995,anewIstanbulMetropolitanAreaMasterPlanwasdeveloped,whichadvocated boththedecentralizationofindustryintheCBDsandCAs,andtheneedtoinvestinpublic transportation.ThisMasterPlanwasnotapprovedbytheMinistryhowever,sothecitycontinuedto developoninformal,localinvestmentplans.Despitethis,MayorSozensinterestinandemphasison environmentalsustainabilityandlongterminvestmentprogramsremovedthethreatonhistoric areasfrompublicsectorfundedinfrastructureprojects.HedevelopedtheMetroproject,apublic transportationprogramtohelpreducetrafficcongestion,andtheNaturalGasprojecttohelpreduce airpollution.UnderSozen,conservationplanningturnedtothepreparationofaCODPforthe historicpeninsula,whichwasnotcompleteduntil2003.20 DespitetheMayorsbestefforts,however,authentic,woodenOttomanhousesinhistoric neighborhoodscontinuedtodeteriorate;manyofthoseprotectedbytheHighCouncilwere subjecttoarsontomakewayforprofitableparkinglots,dismantledbypoorinhabitantstoactas fuel,orlefttorotbecauseownerscouldnotaffordtoabidebythestrictrestorationguidelines.21 21 CenturyUrbanConservation
st
OneissuefacingIstanbulimmediatelyattheturnofthe20thcenturywasthe1999Marmara
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IstanbulHistoricPeninsulaConservationStudy(knownsimplyastheIstanbulProject),whichaimed togeneratecomprehensiveplanningandconservationstrategiesfortheHistoricPeninsula,focusing ontheZeyrek,SuleymaniyeandYenikapiareas.Theirmethodologyincludedanalysisofthehistory oftheareas,goalsandobjectivesofconservationanddevelopment(includingaphysicalanalysisof transportation,landandbuildinguseandcondition,constructionmaterial,andharmonywith architecturalcharacter),andsurveyswiththeareasresidentstogaugetheirlevelofunderstanding ofurbanconservationanditsgoals.Theirultimateaimwastoprotecttheauthentic,intacthistoric environmentandemphasizerehabilitationinsteadofthedecentralizationofjobsorresidential redevelopment,andtoimprovehousingconditionsfortheexistingresidents.24 Thethreatofdelistingprovidedamuchneededwakeupcalltoauthorities,andinJuly 2010,TurkishofficialsfromtheIstanbulGreaterMunicipalityandtheMinistryofCultureandTourism
addressedtheUNESCOWorldHeritageCommittee,whoultimatelyrejectedtherequestthatIstanbul beremovedfromtheWorldHeritageList.WhileUNESCOpraisedTurkishofficialsfortheirdecision tohalttheconstructionofaFourSeasonsHotelonahistoricsite,andforaprojecttorenovate historicwoodenOttomanarchitecture,theyaskedthatIstanbulreconsidercertainproposed constructionprojects,suchasabridgeontheGoldenHornforthemetroandMarmarayproject. Theyalsorequestedthatanewmasterplanfortheprotectionofthecityshistoricresources evaluatetheeffectsofmajorinfrastructureprojectsthatmightimpacttheexistinghistoricfabric, andthewayinwhichtheyplantoprotecthistoricOttomanarchitecture.25 AlthoughtheIstanbulProjectaddressedmanyoftheseissuesintheory,theactual implementationofhowtoaddressthequalityofhousingissuesfacingthecitysnearlyhalfmillion (mostlypoor)residentsinhistoricneighborhoodsisstillasignificantproblem.Muchofthehistoric woodenarchitecturefromtheOttomanperiodislocatedoutsideofthegeneraltouristareasof Istanbul,andsoitsdeteriorationisnotaspublicallynoticeable.Thus,onechallengenowistofind waystoattracthigherlevelsofpublicandprivateinvestmentinhistoricneighborhoodsinwaysthat willmeettheneedsoftheresidentswhilealsopreservingthehistoricfabricandcontributingtothe cityseconomicdevelopment.26 ReformstoTurkeysplanningsystemandculturehavebeentakingplaceinconjunctionwith
informalstrategicplanningframeworkssuchastheJapaneseInternationalCooperationAgency,The IstanbulNeighborhoodRegenerationStrategyandInvestmentProgram,andthepreviously mentionedIstanbulEarthquakeMasterPlan.Theseframeworkslaythefoundationforlongterm sustainablestrategiesforthecity,andwouldbelargelyconsistentwiththeEUapproach.28Afterthe adoptionoftheIstanbulHistoricPeninsulaConservationOrientedDevelopmentPlan(IHPCODP)in 2003,PrimeMinisterErdoganallocated$300millionfortheimplementationofthreeprojectsin Istanbulwhichhighlightedthepotentialfortourismpoliciestopromoteconservation:Thehistoric peninsularwalledcity,BeyogluGalataport,andtheKilyoKumburgazmarine.Unfortunately, however,theIHPCODPwasannulledin2009,andasofearly2010,nolegallybindingconservation planexistedfortheHistoricPeninsula.29 Themostrecentplan,the2008IstanbulMasterplan,providesanumberofobjectivesto
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or80sduetothelackofresourcesorpoliticalsupport.Inthe1980s,Turkey,andIstanbulin particular,struggledwithaninefficientbureaucracyandaninadvertentlydualplanningsystem,in whichformal,statutorylanduseMasterplanswerecombinedwithorcounteractedbyinformal infrastructureinvestmentplans.TheconsequenceofthiswasthattheMasterplans,howevergood, hadonlyalimitedinfluenceintermsofimplementation,andchangesinadministrationresultedin fluctuatingpolicies.Theexpansionofthetourismindustrythroughthe1980sfocusedheavilyonthe preservationofmonumentalstructures,thebeautificationofthesurroundingareas,the developmentoftouristfacilities,andthedecongestionofmotorways,oftenattheexpenseof smaller,significanthistoricresourcesandthedisplacementofpoorresidents.Whilethegrowthof themiddleclassinthe1990shelpedtorehabilitatesomeofthehistoricresidentialOttoman architecture,itwasoftenachievedattheexpenseofthedisplacementoftheexistingresidents. Today,whilethemonumentalstructuresinthehistoricareasofIstanbulremainpopulartourist destinations,theyarelargelyisolatedfromtherestoftheurbancontext.
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Bibliography Akbulut,M.Rifat.HistoricPreservationinIstanbul,Turkey.Lecture,19thInternationalFellows ConferencefromJohnsHopkinsUniversityandtheMiddleEastTechnicalUniversityof Turkey,Istanbul,Turkey,November20,1990. Balamir,Murat.UrbanSeismicRiskManagement:TheEarthquakeMasterPlanofIstanbul.Lecture, 13thWorldConferenceonEarthquakeEngineering,Vancouver,B.C.,Canada,August1,2004. IstanbulMetropolitanMunicipality.RequestForProposalsFortheFutureDevelopmentof HaydarpasaIstanbul,Turkey.April28,2009. Keyder,alar,andAyencGlobalizationofaThirdWorldMetropolis:Istanbulinthe1980's. Review(FernandBraudelCenter)17,no.3(1994):328421. Kocabas,Arzu.UrbanConservationinIstanbul:EvaluationandReconceptualization.Habitat International30(2006):10726. Kocabas,Arzu.Towards'green'ConservationPlanninginIstanbul'sHistoricPeninsula.Lecture, WOCMESSecretariat,EuropeanInstituteoftheMediterranean,Barcelona,Spain,July20, 2010. Michelmore,David.AnalysisoftheStateofConservationoftheHistoricAreasofIstanbul WorldHeritageSite.ICOMOS/UNESCOReview(2006). NC,AYE.ThePoliticsofIstanbul'sOttomanHeritageintheEraofGlobalism:Refractions throughthePrismofaThemePark.(2007):23364. Steele,James.TensionsandTransformationsintheMasterPlanningProcessofIstanbul.Lecture, UrbanTransformation:Controversies,ContrastsandChallengesfromthe14thIPHS Conference,Istanbul,Turkey,July12,2010.
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Appendix 1
1.2 Multi-lane highways along the edge of the Bosphorus on the European side
Appendix 2
2.1 and 2.2 Clearance of dense urban fabric has created large plazas and open space to make way for nice views of monuments such as Hagia Sophia and the Blue Mosque, but isolated them from their context.
Appendix 3
3.1 The concrete waterfront of the Anatolian side facing the Bosphorus has been reclaimed as public space, used largely for cafes
Appendix 4
4.1 Wooden Ottoman architecture is being rapidly lost in many historic areas, such as the Zeyrek distrist (pictured above, photo courtesy of www.scoprireistanbul.com
4.2 In the tourist areas near the main historic monuments, some wooden architecture has been restored or recreated.