UNDERSTANDINGTHEURBAN HERITAGEWITHCOMMUNITY MANAGEMENT
-THEEXAMPLEOFTHERAILCORRIDOR
HEXINGJIAN（贺行健）
ADissertationsubmittedinpartialfulfillmentoftherequirementsforthedegreeof
MasterofArtsInArchitecturalConservation
Atthe
DepartmentofArchitecture
NationalUniversityofSingapore
April2024
Supervisor:WONGYunnChii(Dr)
Abstract
Increasingly,regionsarerecognizingthecommunityasthefoundationalelementin heritagemanagementThesignificanceofcommunityengagementinthe stewardshipofheritageisbecomingprogressivelyacknowledged
TheRailCorridorinSingaporeservesasadistinctiveexemplarofcommunity involvementinheritageconservationinitiativesThroughcooperationwiththe governmentandNGOs,theRailCorridorhasbeenfullyutilizedasanimportant industrialheritageinSingapore,connectingvariouscommunitiesinSingaporeand servingasasharedspaceforthecommunitytoensurethesustainabilityoftheRail Corridor ThisthesishopestosummarizethehistoryandmanagementoftheRailCorridor, analyzehowithasbeenmanaged"bottom-up"inacountrywherethelandis nationallyowned,understandtherelationshipbetweenthemanagementmodel andthegovernment,andsummarizeitsstrengths,aswellasprovideexperiences forfutureheritagemanagementprojectsthatwishtoincorporatecommunity managementThelessonslearnedwillbeusefulforfutureprojectsthatwishtotry tointegratecommunitymanagementintoheritagemanagement.
Keywords：Urbanheritage,Communityengagement,RailCorridor
Wordcount:9234
Acknowledgement
Thecompletionofthisthesishasbeenmadepossiblethroughthesupportofmany individualsFirstly,Iwouldliketoexpressmygratitudetomyadvisor,Professor YCWONGProfessorWONGhasalwayspatientlylistenedtomyimmatureideas andprovidedsuggestions,andhissupporthasbeenindispensabletothe completionofthisthesis.Secondly,IwishtothankProfessorJohannesWIDODO forhisinvaluableadviceduringtimeswhenIstruggledtofindmaterialsandmake progresswithmythesis.Lastly,IwouldliketoextendmythankstoProfessorTAN BengKiang,whosebookslenttomesupplementedsomeofthebackground materialsIhadbeenseeking.Withthesematerials,Iwasabletothoroughly delineatethebackgroundoftheestablishmentoftheRailCorridor.
Asgraduationapproaches,inadditiontotheaforementionedprofessors,Iwould alsoliketothanktheotherprofessorsfortheircultivation.Althoughoneyearisa shorttime,Iwillforeverrememberyoursupportinmyheart!
ListofFigures
figure1DraftMasterPlan2025publicengagementexercise 19
figure2railcorridorLandarea（source：greencorridor）............................21
figure3KeretapiTanahMelayu(KTM)trainatSultanStreettrainstationin KualaLumpur....................................................................................................................23
figure4AClass24KTMBlocomotivehaulingatrainpastKampongLorong FatimahandenteringWoodlandsCheckpoint,itsdistinctivewallseenon theleft.Thekampongwasexpungedafewmonthslatertomakewayfor constructionoftheCustomsDepartmentextensiontotheWoodlands Checkpoint..........................................................................................................................24
figure5Coverofatravelbrochurefrom1959illustratingthepossibilitiesof railtravel 27
figure6"唐山阿嫂（ChinaWife）"MoviePoster....................................................28
figure7thelastdayoftrainservicesfromSingaporetoMalaysia.Thecrowd wasallowedtoboardthetrainduringthestopinBtTimahRailway Station.(Source:linkway88,2011)..........................................................................32
figure8Re-ImaginingtheRailCorridor–TravelingExhibitionPoster..........37
figure9Figure:generalstructureofcommunitiesundertheFriendsofthe
figure10RailCorridor(North)accessibilitytable,source:RailCorridor
officialsite 47
1.ResearchFramework
1.1Introduction&background
1.1.1ProjectBackground:EstablishmentoftheRail Corridor
Foralmostacentury,theKeretapiTanahMelayu(KTM)railroadhasbeen connectingMalaysiawithSingapore.Therailroadcarriesthememoriesofmany localresidentsandhasseenthehistoricalrelationshipbetweenMalaysiaand Singaporechange.However,withtheclosureoftherailroadin2011,Malaysiaand SingaporereachedanagreementwherebySingaporeregainedthelandalongthe railroad,whileMalaysiadismantledtherailroadfacilitiesandshippedthembackto itshomecountry.Thus,thefateoftherailroadseemedtocometoanend.
WhentheSingaporeandMalaysiangovernmentsreachedanagreementin2010, therewasnoofficialdetailedlandplangiven(LeongKwokPeng,2016),whichgave localcommunitiesandactivistsspacetoact.ExpertsandNGOshaveexpressed concernsaboutfutureplanning,fearingthatinappropriateplanningcould completelyerasethetracesoftheKTMRailway'sexistence,makingitimpossibleto recallthispartofhistory.TheImmediatePastPresidentoftheNatureSocietyof Singapore(NSS),Dr.GehMin,mentionedin2010:"Theleastchallengingandmost imaginative"solution"wouldbeforpolicymakers,plannersanddeveloperstoparcel thelandout.developerstoparcelthelandoutasrealestate,dismantletheline,erase
therailwayanditsmemoryfromthepublicandrelegateittotextbookhistory."
Asaresult,activistsandNGOshavebeguntoformulateplansforthefutureofthe KTMrailsiteVicepresidentofNatureSocietySingapore,LeongKwokPeng, mentionedinaninterview(2016)thattheNSShasbeenplanningtosetupa "greencorridor"inSingaporesincethemid-1990s,andthereturnoftheKTMsite certainlyprovidesagoodopportunitytodoso."ThereturnoftheKTMsite providedagoodopportunitytodoso,astheKTMrailsiteitselfcutsthrougha largeamountofnaturalgreenspace,andcouldbecomea"naturalcorridor" withoutmuchadditionalmodification.Sosoonaftertheintergovernmental agreementwasreachedin2010,awebpageandfacebookgroupcalled"We SupportGreenCorridor"wascreatedbyNGOsandactivists.Theinitiativereceived unexpectedfeedbackandsuccessatthetime,withtheStraitsTimes(2010) reportingontheenthusiasm.TheNatureSocietyofSingaporelatersubmittedthe planandinitiativetothegovernment.
AccordingtoMr.LeongKwokPeng,thegovernment'sinvolvementseemedtostart slowly.SixmonthsafterNSS'sproposal,itwasnotuntilafewweeksbeforethe officialhandoveroftheKTMRailwaythatanattemptwasmadetocontactthe organizersoftheWeSupportGreenCorridor,whichwasthebeginningofthe involvementoftheURA(UrbanRedevelopmentAuthority).Thiswasthebeginning oftheinvolvementofURA(UrbanRedevelopmentAuthority).
Sincethen,URAhasbeenworkingwithavarietyofNGOsandcommunities, drawingontheirinputsandincorporatingthosepreviouslyinvolvedintothe FriendsoftheRailCorridor(FRC),asub-groupoftheNationalParksgovernment agency,tofacilitatethefuturemanagementandconstructionoftheRailCorridor. TheRailCorridorisstillinoperationtoday.Tothisday,theRailCorridorcontinues tobeusedbycommunitiesandvisitorsalongtherouteasa"sharedcommunity space"(asdescribedontheRailCorridorwebsite).
1.1.2ResearchBackground:HistoricUrbanLandscape andCommunityEngagement
UNESCOdefinesthe“HistoricUrbanLandscape”astheurbanspacerecognizedas theoutcomeofthehistoricalaccumulationofculturalandnaturalvaluesand featuresThisconceptexpandsbeyondthetraditionalideaofa“historiccenter”or “ensemble”toincludethelargerurbansettinganditsculturalandnaturalvalues, alongwithitsgeographicallocation(UNESCO,2011)Beforethisideawas established,thefocusofheritageconservationwasmoreontheprotectionof individualhistoricstructuresorculturalassets,apracticethatoftendisconnected heritagefromitsurbansurroundings.Inresponse,UNESCOupdatedits Recommendationin2011,introducingnewguidelinesandstrategiesforthe preservationofhistoricurbanlandscapeswithintheurbanenvironment.
Inrecentyears,communityparticipationhasbecomethefocusofsocialprograms, whichisoneofthecharacteristicsoftheso-called"participatorysociety"(Lovanet al.,2004).Socialparticipationcaneffectivelyreducepublicresistancetoaproject whiledrawingonethicaladvicetobetterplanandcreatelocallyappropriate projects.
1.2researchaimandmethodology
Thepurposeofthisdissertationistosummarizethehistoryofthecreationand managementprocessoftheRailCorridor,tounderstandhowtheRailCorridorwas initiatedbyactivistsandNGOsandeventuallysucceededinoccupyingacertain positionunderthegovernment'splanning,andalsotoorganizehowthe communitywasinvolvedinthemanagementandplanningoftheRailCorridorItis hopedthatthisanalysiswillprovidelessonsforotherprojectsthatwishtodevelop communitygovernanceandheritagemanagement
Giventheobjectivesandtargetaudienceofthisstudy,aqualitativeresearch methodologywasusedtosummarizeandexplorethecreationandmanagementof theRailCorridorinordertodrawconclusions.Inordertorealizetheresearch objectives,thisresearchisdividedintofourstages:
Gothroughrelevantinformationtounderstandthebasictheoryandthe
backgroundoftheRailCorridor；
Hands-onactivitiestoobservethestateofheritageconservationand communityinvolvement；
Gatherinformationandsummarizethetimelineandmanagementmodelfor theRailCorridor；
SummarizeRailCorridorcharacteristicsanddrawconclusions.
Therearelimitationsinthisresearch.Firstly,thesamplemaybebiasedasthis researchfocusesonthegovernment,NGOs,andsomeofthecommunityresidents whoareactivelyinvolvedinheritagemanagement,andtheopinionsandfeedback obtainedmaynotbeabletoincludeallthestakeholders.Secondly,theconclusions ofthisstudyarebasedontheSingaporeRailCorridor,whichisaveryspecialcase inSingapore,andthereforetheanalysisofsomeofitscreationandmanagement experiencesmaynotbefeasibleinotherregionsandneedstobecarefully consideredinthecontextofregionalcharacteristicsandculturalbackgrounds. Finally,becauseheritageprojectsinvolvingcommunitymanagementarevery dynamic,theneedsofthecommunitymaychangeaccordingtothetimes,andthe culturalvaluesoftheheritagemayalsochange,sothereisnostandardanswerto theappropriatemanagementmode,andtheconclusionsdrawninthispaperneed tobeanalyzeddialecticallywiththecontextofthetimesandtheactualneedsofthe moment
2.Literaturereview
2.1HistoricalHeritageintheContextofUrbanization
In1976,UNESCOaddressedtheconservationofheritageinhistoricallocalesand releasedaRecommendationontheProtectionandModernRoleofHistoricAreas.
Yet,theevolvingcircumstanceshavemadethepastadvicesomewhatobsolete. Heritagecustodiansnowseekguidancethatalignswiththelocalcommunity’s contextAgainstthisbackdrop,onNovember10,2011,atUNESCO’sgeneral assemblyinParis,France,afreshrecommendationwasformulatedandreceived unanimousconsentfromtheattendees,whichispresentlyknownas“the RecommendationontheHistoricUrbanLandscape,”or“HUL”forshortThisnew guidelinedoesn’tsupplanttheoldbutacknowledgestheconditionofmostheritage withinurbanareastodayandendeavorstoweaveheritagemanagement’saims intourbanization.Thegoalistofostersustainabledevelopmentandstewardshipof heritageinthemulticulturalurbansettingsofthefuture.
The2011UNESCORecommendationarticulatesthaturbanheritage,withits physicalandnon-physicalelements,isavitalassetinimprovingthe habitabilityofurbanspaces.Itpromoteseconomicprogressandsocialunityin anevolvingglobalcontext.Recognizingthathumanity'sfuturedependsonthe adeptorganizationandadministrationofresources,conservationhasemerged asamethodtoharmonizeurbanexpansionwiththepursuitofasustainable
qualityoflife.
Inthecontextofurbanization,itisbecomingincreasinglydifficulttoplaceheritage inacontextoutsidethecityThesignificanceof“theRecommendationonthe HistoricUrbanLandscape”liesinitsroleinacknowledgingandintegrating heritagewithintheurbanfabricHeritagemanagementisnotanattempttoisolate heritagefromitsurbansurroundingsandtokeepitina"museum".Insummary, HULsuggeststhatweneedtorecognizethefollowingissues（Summarizedbythe author）：
Recognizethatcitiesareacollectionofhumanculturesandoneoftherichest expressionsofculturalheritage;
Recognizethaturbanizationisproceedingrapidlyonaglobalscaleatarate unprecedentedinhistory;
Recognizesthatuncontrolleddevelopmentisfragmentingthemanagementof urbanheritageandaffectingitsvalue;
Recognizesthatheritageconservationneedstobeintegratedintourban planningandconsideredinthecontextofurbandevelopmentprocesses;
Recognizethatheritageconservationrequiressustainabledevelopment strategiestoprotectexistingresources. Citiesareplaceswherepeoplelive,wherecultureandcreativityareborn,and naturallywhereculturalheritageisdensest.Beyondthisidentity,however,cities
alsocarrytheeconomicdevelopmentandmaterialaspirationsofhumanbeings, providingemploymentandlivingenvironmentsthatfulfilltheneedsand expectationsoftheirinhabitants.However,excessiveurbandevelopmentcanresult inahighconcentrationofbuildings,ascarcityofpublicspaces,andadeficitin fundamentalcommunityareas.Thesefactorscansignificantlydeterioratethe qualityofurbanlivingenvironmentsandcompromisetheintegrityandworthof culturalheritagesituatedwithincities.Withoutaproperbalancebetweenthese complexrelationships,cities,andheritagecannotbesustainablydeveloped.
TheHistoricUrbanLandscape(HUL)approachadvocatesfortheinclusionof culturalheritageinurbanplanninganddevelopmentprocesses.Itemphasizesthat theinfluenceofculturalheritageisintegraltotheestablishmentofsustainable developmentobjectives,ensuringthatheritageconsiderationsarewovenintothe fabricofurbangrowthstrategiesandthatculturalheritageshouldnotbe consideredinisolation.(Jietal.,2020;Verdinietal.,2017)Itthereforeproposesa landscape-basedassessmentmethodologythatseekstocombinethephysicalform ofculturalheritagewithspatialorganizationallinks,etc.,andtopreservethe naturalcharacteristicsofculturalheritagewhileconsideringitsinteractionsand linkswithsocialandcultural,economic,andothervaluesBydoingso,it establishesareasfortheprotectionandmanagementofculturalheritageina broaderurbancontext
ThissectionsummarizesthebackgroundoftheHULapproachanditsbasic conceptsandapplicationscenarios.Someofitsbasictoolsareindicativeofvarious typesofheritageconservationwork.InthecaseoftheRailCorridorproject,since itwascreatedin2011,thereisnoexplicitreferencetotheHULapproach,which wasbornin2014,butthecontextofurbanizationandtheproblemsitfacesare similar.theRailCorridorisalsofacingthedilemmasofurbanization,butURAhas notchosentodemolishitcompletely.
LookingattheRailCorridorthroughthelensoftheHULapproach,itisnotdifficult torealizethatalthoughtheirattemptstoimplementtheessenceareverysimilar, theyallsharethepursuitofsustainabledevelopmentofheritageandreflectonthe relationshipbetweentheurbanenvironmentandheritage.Themoremodernand scientificHULapproachcanmaketheevaluationoftheRailCorridormore objectiveandcomprehensive.
ByexaminingRailCorridor,thisdissertationseekstoconcludewhetherthe managementmodelofRailCorridor,whichisinitiatedbythepeopleandNGOsbut ultimatelymanagedbytheURA,iscompatiblewiththeHULapproachofmobilizing communityparticipation.Inaddition,byexaminingthemanagementmodelofthe RailCorridor,thisthesiswillalsoattempttofindoutiftherearepartsofthe programthatdonotmatchwiththeHUL,andwhethertheyareimportant.
2.2Understandingtherelationbetweencommunityand HeritageSustainability
Ourcurrentsocialenvironmentcanbedescribedasa"participatorysociety",with anincreasingnumberofsocialprogramsofallkindspromotingcommunity participation(Lovanetal,2004)Thesameistrueforheritagemanagement Howeverinthelastdecades,heritageconservationhasbeensymbolizedbyits inclusionin'heritagelists',andnofurtheractionhasbeentaken.Overtime,these listshavebecomelongerandlonger,andthenumberof'WorldHeritageSites'has grownexponentially,potentiallycausingunpredictabledamagetoheritage. (Harrison,2012)Inthiscontext,ensuringthesustainabilityofheritageisan importantissue.
Involvementofthelocalcommunityisoftenabetterwayoflocatingthevaluesof theheritage,whichcannotbereplacedbythegovernmentoroutsideprofessionals. However,localcommunitiesarestillrecognizedassecondarystakeholdersinmany heritageprojects,andtheirpublicvoicesseemtobeignoredincomparisontothe "moreauthoritative"voicesofinternationalexpertsandgovernments.The involvementofexpertsandgovernmentsinheritageprojectsisoftenshort-term,in contrasttothelong-termuseandmaintenanceoflocalcommunities(Kyriakidis,E., 2019).Thisrelationshipdeterminesthatitisthelocalcommunitythatisthekey playerinpreservingtheprosperityanddevelopmentofheritage.Thereforethe
sustainabilityofheritagemusttreatthecommunityasthemainstakeholderand givethecommunityafullvoice.
Communityuseenablestheculturalattributesandsignificanceofheritagetobe strengthenedAccordingtoMMalheiro(2014):Intermsoftheculturalheritage itself,thelinkagewillonlysupportculturalsignificanceandmeaningifthe communitycontinuestoutilizeitintheirdailylivestoenhancetheirlocalidentity.
Culturalsustainabilityofheritageis,infact,anaspectthatisoftenoverlooked.The transmissionofcultureisnotsomethingthatcanbesustainedbyshoutingslogans orbylistingitas"culturalheritage"andputtingitinamuseum.Thetransmission ofculturalattributesrequirestheactualparticipationoftheinheritors,andinthe caseofarchitecturalorlandscapeheritage,thelocalcommunityisboththeuser andtheinheritor.Throughsustainedusebythelocalcommunity,thefunctionof theheritageitselfiscontinuedandthetraditionswithinitareinherited.For heritagethatisnotused,itsculturalattributescanatbestonlyberecordedin booksorotherways,andpeoplecannotexperiencethempersonally,sothe feedbacktheyreceiveisnotcomparabletothatofa'livingheritage'thatisused continuously Thesustainabilityofheritageisamultifacetedissue,encompassingeconomic sustainability,ensuringthatdevelopmentdoesnotharmtheheritageitself,andso on.Inmostcases,communitiesandheritagehaveasymbioticrelationship(Brooks,
2023),wherebytherevenuegeneratedbyheritagedevelopmentcandrivelocal economicdevelopment,andgoodeconomicdevelopmentcansupport communitiestocontinuetoinvestinheritageconservationanddevelopment.Itis notdifficulttoimaginethatifthereisnogooddevelopmentofheritage,thelocal communitymaynotbeabletoaffordthecostofheritagemaintenance,andthe localcommunitywillfacetheriskofdecline,andtheyoungergenerationwillleave andfallintoaviciouscircle.Thesameistruefortheheritageitself.Withoutgood maintenance,theauthenticityandcharacteroftheheritagewillbecompromised, andincorrectmaintenancewillleadtoalossofauthenticity,whichwillleadtoa graduallossofthevalueoftheheritagetobedeveloped,andthedeclineofboththe localcommunityandtheheritageitselfAgoodcommunity-heritagerelationshipis thereforekeytothesustainabilityofheritage
Thesuccessofpublicinvolvementstrategiesisgreatlyinfluencedbythepolitical andculturalcontextswithinanation,aswellasthecivilsociety'slevelof preparednessandsophisticationinsuggestinginitiativesandseeingthemto fruition(HeeandKhoo2013).AstheRailCorridorprojectislocatedinSingapore, wealsoneedtodiscuss'participatorysociety'inthecontextofSingaporeInthe caseofSingapore,themodelofcollaborationbetweengovernmentagenciesand thecommunityhashelpedtomaketheparticipatorysocietyarealitySingapore's Housing&DevelopmentBoard(HDB)hasbeencommittedtobuildingCommunity ParticipatoryProjectsinrecentyears,includingBedok,Sembawang,etcThe
governmentactivelycollectsideasandsuggestionsfromthecommunityinthese projectsandcooperateswiththecommunityandvariousorganizationsin designingtheprojects.Intheseprojects,thegovernmentactivelycollectsideasand suggestionsfromthecommunity,andcooperateswiththecommunityandvarious organizationsindesigningtheprojects,sothatmanypeoplecanparticipate.
Nevertheless,Singapore's"participatorysociety"maystillbeincompletecompared tosomecountrieswithmoreentrenchedNeo-liberalismandliberalism.Ingeneral, Singapore'splanningmodelisstilla"top-down"managementstructure,and Singapore's"participatorysociety"maystilllacksomeofthetransparencyof
government,comparedtothe"bottom-up"modelthatisprevalentinEuropeand theUnitedStates.Singapore's"participatorysociety"maystilllackpartofthe transparencyofgovernment.Thisdissertationwillattempttoexplorewhetherthis parthasaffectedthecommunityparticipationinthemanagementoftheRail Corridor.
3.Researchontherailcorridor
3.1ResearchScope
TheRailCorridorproject,whichwasconvertedfromtheKeretapiTanahMelayu (KTM)railroadlandin2011.TheRailCorridorconsistsoftwomainlinesandsome othersmallbranches.ThemainlinesaretheWoodlands-TanjongPagarlineand theJuronglineThecurrentRailCorridorismainlyconvertedfromtheWoodlands -TanjongPagarline,whichisabout24kmlong
TheRailCorridorinSingaporeencompassesapproximately173.7hectares,which isnearlytriplethesizeoftheBotanicalGardensat63.7hectares.Itconstitutes about0.24%ofthetotallandareaofSingapore.(TheGreenCorridor,2011).
ThesubjectofthisstudyisnoneotherthantheRailCorridorproject,whichisalso partoftheformerKTMRailwaysiteThesitewasreturnedtoSingaporeby agreementin2010,althoughinexchangethetwocountrieswouldjointlydevelop reclaimedlandinamorelucrativeareaofSingapore'scitycenter,whichhascaused resentmentamongsomeofSingapore'sresidents.
Thescopeofthisstudyfocusesontheareaoflandthathasbeenutilizedforthe transformationoftheRailCorridorprojectThetimeframeofthestudyfocuseson theutilizationofthelandaftertheagreementbetweenSingaporeandMalaysiain 2010anduptothepresentday(2024).Tounderstandthecontextofthesubject matterofthestudy,earlierhistoricalcontextsarealsocoveredbutarenotthefocus ofthestudy.
3.2HistoricaltimelineoftheRailCorridor
TheRailCorridorwasformerlyknownastheKTMRailway,althoughtheKTM RailwayisoperatedbyMalaysiancompany,andfurtherback,therailroadcanbe tracedbacktotheTrans-SingaporeRailwaysystembuiltbytheBritishcolonialists inthe1900'sThehistoryoftherailroadcanbedividedintothefollowingbasic
stages.BasedonthebackgroundinformationprovidedbyNparks(2011)andthe author'sadditionalsummary,thehistoryofthisrailroadcanbedividedintothe followingbasicstages:
PhaseI:From1903-1932,theBritishcolonizersplannedtobuildatransSingaporerailroadlineThisplanhadbeenproposedasearlyas1869,though actualconstructionbeganonlyin1900.In1906-1907,thisrailwaylinewas continuouslyextendedtoPasirPanjangandconnectedtothejetty.Followingthe BritishcolonialwithdrawalfromSingapore,theMalaysiangovernmentacquired theentireSingapore-KranjiRailwayLinein1918for$4.13million.Subsequently, thislinewasdesignatedaspartoftheKeretapiTanahMelayuBerhad(KTMB) Railwaynetwork.
figure3KeretapiTanahMelayu(KTM)trainatSultanStreettrainstationinKualaLumpur
(Source:JOHNC.YOUNG,1968-1970)
Phase2:1932-1990s,afterSingapore'sindependence,theeconomybegantotake off,cooperationwithMalaysiawasinitiated,andindustrialzonessuchasJurong begantobesetup,withtherailroadalsoplayinganimportantroleineconomic exchange.Duringthisperiod,therailroadlinewassuccessfullyconnectedtoJohor BahrustationinPeninsularMalaysia.Itisworthmentioningthatduringthis period,thepublichadromanticfantasiesaboutrailroadtravel,andfilmandother culturalworksabouttherailroadalsobegantoemerge.
figure4AClass24KTMBlocomotivehaulingatrainpastKampongLorongFatimahandentering WoodlandsCheckpoint,itsdistinctivewallseenontheleftThekampongwasexpungedafew monthslatertomakewayforconstructionoftheCustomsDepartmentextensiontotheWoodlands
Checkpoint
(Source:NATIONALARCHIVESOFSINGAPORE,1989)
Phase3:The1990s-2011periodcanbeconsideredastheendofthelifeofthe KTMRailway.Singapore'seconomicdevelopmentwassuchthatitnolonger neededtheoutdatedrailtransportation.Atthesametime,thenoiseproblem causedbytherailroadwasoftencomplainedbytheneighboringresidents.In2010, SingaporereachedanagreementwithMalaysiatomovetheCustoms,Immigration, andQuarantinefacilitytoWoodlandsfromTanjongPagar.Fromthistimeonwards, activistsandinterestedgroupsandNGOsstartedtoplanforthefutureoftheland leftbehindbytheKTMRailway.
Phase4:From2011tonow,URAhastakenovertheplanningoftheKTMRail Corridor,listeningtotheviewsofmanyinterestgroupsandcommunities,andin 2017,FRC(FriendsofRailCorridor)wasformed,whichconsistsofmanyexpertsin therelevantfieldsaswellaspassionatemembersofthecommunity,totrytomake theRailCorridorasharedcommunityspace.Tothisday,peoplecontinuetouse thisgreencorridorinthemiddleofthecity.
3.3RailCorridor’ssignificance
TheKTMrailroadhasaspecialplaceinSingapore'shistory,anditstransformation intotheRailCorridorinheritsthis.Inadditiontothis,theRailCorridorcontinues tobeusedasasharedcommunityspacebylocalresidentsandtouristsalike,and
thushasacomplexsignificance,which,whenanalyzedasawhole,canbe summarizedintothefollowingcategories:
Historicalvalue:TheRailCorridorhasahighhistoricalvalue,astheKTMrailroad landusedbytheRailCorridorretainsmanyhistoricalrailroadfacilitiessuchasthe TanjongPagarRailwayStation,BukitTimahRailwayStation,andsomeofthe railroadtracksalongthecorridor.etc.Therailroadlineisarecordoftheevolution ofindustryandthedeclineofrailtransportationfromthe1900sonwards.
OriginallyfoundedbytheBritishcolonialistsandthenpurchasedandtakenover byMalaysia,therailroadlinehaswitnessedthetransformationofSingaporefrom thefirstBritishcolonytoitslaterrelationshipwithMalaysia,andthesubsequent declineoftheKTMRailwayispartlyareflectionofSingapore'seconomicand technologicaladvancementandthedevelopmentofnewmeansoftransportation.
Assuch,thisrailroadsitecanbedescribedasoneofSingapore'smostimportant industrialheritagesites.
SocialValue:TheRailCorridorhasahighsocialvalueandthesocialvalueofthe RailCorridorcanbedividedintotwoaspects,theKTMrailroadphaseandthe presentRailCorridorphase.Inthepast,theKTMRailwaywasconsideredoneof thesymbolsofindustrialadvancement,anditalsoinspiredartisticcreativity, whichledtotheemergenceofalargenumberofliteraryworkssuchas"唐山阿嫂
（ChinaWife）",etc.TheKTMRailwayalsocarriesalargenumberofmemoriesof
thepeopleofSingapore,andwhentherailroadwascloseddown,alargenumberof peoplegatheredspontaneouslytocelebratetheclosureoftherailroad.TheKTM RailwayalsocarriesalotofmemoriesforthepeopleofSingapore,andwhenthe railwaywascloseddown,alotofpeoplegatheredspontaneouslytoreminisce abouttheKTMRailwayandtheirchildhoodmemories.ForthesecondRail Corridorphase,theclosureoftheKTMRailwayleftbehindalargelineargreen space,whichisnowbeingusedtocreatea"sharedcommunityspace"thatserves asanimportantpublicspaceinSingaporeasaplaceofexerciseforbothlocal communitymembersandforeigntouristsonfootAtthesametime,itslinear spatialpropertiesallowittoconnectthenorthandsouthofSingapore,linkingup communityspacesalongthewayandplayinganimportantcommunityrole
figure5Coverofatravelbrochurefrom1959illustratingthepossibilitiesofrailtravel（source： LaiCheeKien）
（source：Internet）
EcologicalValue:TheRailCorridorisofhighecologicalvalue.Theareacrossedby theformerKTMrailroadcontainsalargeamountofundevelopedgreenspace,as wellassecondaryforests,grasslandsandsmallfruitandvegetablefarms.When theKTMrailroadwasremoved,thesespaceswerepreserved,andtheRailCorridor becamea"spine"connectingmanynaturalandecologicalareas(TheGreen Corridor,2010).SuchacompletegreencorridorisrareandvaluableinSingapore, anditprovidesanopportunityforcommunitiesalongthecorridortogetcloserto natureandfeelconnectedtoecologicalgreenerythanintherapidlydeveloping urbanareasofSingapore,whicharerelativelydevoidofurbangreenspace
"MoviePoster
IndustrialValue:TheRailCorridorhasamoderateindustrialvalue;thesiteofthe RailCorridoristheformerKTMRailway,andalthoughmostoftherailroad facilitieshavebeendemolished,severalfacilitieshavebeenpreserved.Through thesefacilities,itispossibletoseeandanalyzethelevelofindustrialdevelopment inthepast.Thiswillserveasareferenceforanyfuturerailroadconstructionplans.
From2011tonow,URAhastakenovertheplanningoftheKTMRailCorridor, listeningtotheviewsofmanyinterestgroupsandcommunities,andin2017,FRC (FriendsofRailCorridor)wasformed,whichconsistsofmanyexpertsinthe relevantfieldsaswellaspassionatemembersofthecommunity,totrytomakethe RailCorridorasharedcommunityspace.TheFRC(FriendsofRailCorridor)was formedbyagroupofprofessionalexpertsandenthusiasticcommunitymembersto trytomaketheRailCorridorasharedcommunityspace.Tothisday,people continuetousethisgreencorridorinthemiddleofthecity.
3.4CommunityAttitudesTowardtheRailCorridor
CommunitymembersshouldhavemixedfeelingsabouttheRailCorridor,giventhe railroad'shistoricalstatusandbackground.However,itisworthnotingthat communitymembershavemostlypositivefeelingsaboutthecurrentRailCorridor.
TheRailCorridorwasfirstconceivedbytheBritishcolonialists,thenre-takenover
bytheMalaysianRailwayCorporation,andlater,eventhoughanagreementwas reachedbetweenthegovernmentstoreturntheland,itseemsthataportionofthe landwasgivenawayagaininmoreeconomicallyprosperousareas.Inthisway,the railroadseemstosymbolizetwocolonizations,thefirstbytheBritishcolonizers andthesecondbyMalaysia.Itisalsonotsurprisingtoseethatinsomereports,the railroadhasbeenreferredtoasa"symbolofcolonialism"oras“anawkward reminderoftheterritorialpresenceofMalaysiaonSingapore’ssoil”（RameshS，
ChannelNewsAsia，24May2010）.Itisthereforenotdifficulttounderstandthe partlyantipatheticfeelingofsomepeopletowardsthisrailroad
Notonlythat,buttherailroadhadalsobeenanuisancetothesurrounding residents.Accordingtoaguidedwalk(March16,2024)byNparkvolunteers, membersofthecommunitylivingaroundtherailroadhavecomplainedaboutthe noisepollutioncausedbyitsoperation.Incontrast,aftertheannouncementofthe cessationagreement,ThestudybyDiaoetal.(2015)indicatesthattheaverage priceofhousessituatedwithina400-meterradiusoftheraillinesawanincrease of3.5%comparedtothoselocatedbeyondthe400-meterboundary.
Moreover,withtherapiddevelopmentofSingaporeafterindependence,more advancedandefficientmodesoftransportationsuchasautomobilesandairplanes begantobeembraced.Atthispoint,theKTMRailway,withaspeedofonly 75km/hour,didnotseemtobethebestchoice.Asaresult,thisoutdatedMalaysian
railroadwasgraduallyforgottenandhasnowbecomeasymbolofthetense relationshipbetweenthetwoseparatepost-colonialnation-states.(Khiunetal., 2014)
However,itisinterestingtoseehowlocalresidentsviewtheRailCorridorIna guidedwalkorganizedbyNparks,theauthortriedtoaskafewparticipantsabout theirattitudestowardstheRailCorridor,andtheyweregenerallysatisfiedwiththe currentstateoftheRailCorridor.WhentheauthoraskedabouttheRailCorridor beingcalleda"symbolofcolonialism",theyreplied,"ItcanbesaidthattheRail CorridorisasymbolofcolonialismbecauseitwasinitiallytheideaoftheBritish colonizerstobuildtheRailCorridorfortransportingrawmaterials,andsoon. However,whenthecolonizersleft,theyalsoleftbehindthebasicfacilitiesofthe railroadandotherbuildingssuchashospitals,sowedon'tneedtostartfrom scratchwhenwerebuildit,soIdon'tthinktheSingaporeanpeoplearetoo resentfulofthecolonizers'attitude."ThisshowsthatthepeopleofSingaporehave morelovethandislikefortheKTMRailway'stransformationintoaRailCorridor.
Infact,peopleinSingaporeexpressedtheirlamentswhentheKTMRailwaywas abouttobeshutdownin2010and2011.Inthemonthsleadinguptotheclosureof therailroadline,alargenumberofpeoplewithsophisticatedcamerasandother equipmentcametovisitthestationsandpassingtrainsalongtherailroadlineto witnesstheendofarailroadlinethathadbeeninoperationformorethana
century(Khiunetal.,2014).In2011,TheNationalLibraryBoardorganizedan eventcalled"IRememberKTM"asoneofthesub-eventsof"IrememberSG"to provideanopportunityforpeopletoremembertheKTMRailway.Thiscampaign, asasub-campaignof"IrememberSG",providedaplaceforpeopletomemorialize theKTMrailroad.Thecampaignencouragedpeopletouploadtheirownstories relatedtotheKTMRailway,andmanypeopleuploadedtheirchildhoodstoriesof travelingontheKTMRailwaytoandfromMalaysia,expressingtheirnostalgiafor theKTMRailway. figure7thelastdayoftrainservicesfromSingaporetoMalaysiaThecrowdwasallowedtoboard thetrainduringthestopinBtTimahRailwayStation(Source:linkway88,2011)
ThisshowsthatalthoughtheSingaporeancommunityrecognizestheKTMRailway
asa "symbolofcolonialism",theydonothaveanynegativefeelingstowardsthe
KTMRailwayandtheRailCorridor.Onthecontrary,thereisnostalgiaforthe historyoftheKTMRailwayandthecontinueduseofthelandasSingapore'sgreen corridor.AlargenumberoftouristsandtrekkersvisittheRailCorridortotake photos,enjoynature,andstrengthentheirbodies.
4.Managementoftherailcorridor
4.1TheStartoftheManagementofRailCorridor
Tounderstandhowthecommunityaswellasactivistsbegantheheritage managementoftheRailCorridor,itisnecessarytolookbackatthetimelineofhow
theKTMRailwaywastransformedintotheRailCorridor.Organizedwiththe CentreforLiveableCities(CLC)andothersources,wecanroughlydividethe processintofivestages,showinghowtheKTMrailroadwastransformedstepby stepintowhatweseenow
Phase1:CivilsocietyorganizationsandNGOslaunchactivities(2010-2011): Thefirstphasefocusedontheparticipationofsocialorganizationsandthe launchingofactivitiesDuringthisphase,thegovernmentwasnotyetformally involved,andthetransformationoftheRailCorridorhadnotyettakenplace 24May2010,SingaporeandMalaysiareachedanagreementontheKTMrailroad, butatthesametime,theSingaporeangovernmentdidnotannouncehowtheland wouldbeutilized,whichraisedconcerns,asdiscussedearlier.supportTheGreen Corridorcampaignwaslaunchedinthesameyear,raisingconcernswiththelocal communityandultimatelytheURA.21October2010,NatureSociety(Singapore) (NSS)submittedaproposaltokeeptherailroadsiteasa"greencorridor".The proposaltokeeptherailroadsiteasa'greencorridor'receivedaresponsefromthe
governmentsixmonthslater.
Bythebeginningofthisphase,theimportanceofheritagewaswidelyrecognized andSingaporehadawell-establishedheritageconservationsystemandawards suchastheAHAawardsAlthoughgovernmententitiesliketheUrban RedevelopmentAuthority(URA)hadacknowledgedthesignificanceofheritage, thefocusoncommunityparticipationinitsmanagementwasonlystartingto emerge.TheRailCorridorprojectpresentedachanceforthegovernmentto officiallyacknowledgethevalueofcommunityinputinheritageconservation efforts.
Phase2:URAgatherscommunityinput,launchescampaign(Softengagement, 2011-2012):Inthesecondphase,URAbecameformallyinvolved,anditbeganto gatherextensivecommunityinputandorganizecampaignstoexplaintothepublic abouttheRailCorridor.informationabouttheRailCorridor.
1July2011,aRailCorridorwebsitewasdevelopedbyURAtogathercommunity input,andafterasix-monthperiod,"RailCorridor"wasdeterminedtobethe officialnameofthefuturegreencorridorFrom1to17July2011,theentire railroadwasopenedtothepublicbeforemostofthetrackswereremoved.The StraitsTimesreportfromJuly3,2011,capturedtheeventasanunprecedented sightinSingapore,withnumerousindividualswalkingalongtherailwaytracksthat stretchfromWoodlandstoTanjongPagar,aspectaclethatleftmanyinastateof
surprise.
InJuly2011,TheRailCorridorConsultationGroup(RCCG)wascreatedand convenedameetingThemeetingbroughttogethertheNGOsthathadorganized thecampaigninthefirstplace,suchasNSS(NatureSocietyofSingapore)andSHS (SingaporeHeritageSociety),aswellasmanyprofessionalscholarsandartists,and foundersofthe"WeSupporttheGreenCorridor"Facebookpage.Themeeting providedaplatformfortheseorganizationsandindividualstopresenttheirideas andplansandwasanimportantfirststepinthecommunity'sdirectinvolvementin governmentplanning.
InAugust2011,NUScarriedoutaworkshopontheRailCorridorThefinal outcomewasdisplayedattheURAHall,entitled"Re-imagingtheRailCorridor", presentedbyFriendsoftheRailCorridorandNSS,supportedbytheURA.The students'ideasandopinionswereusedinpartasastartingpointfordiscussionsto influencethefutureoftheRailCorridor.Thestudents'ideasandopinionswere usedinpartasastartingpointfordiscussionstoinfluencethefutureoftheRail Corridor.
figure8Re-ImaginingtheRailCorridor–TravelingExhibitionPoster
source：TheGreenCorridorofficialsite,2011）
Atthisstage,thegovernmenthasbeguntoexperimentwithcommunity participationinheritagemanagement,withindividualsandcommunitieshavingan increasingvoiceinestablishingarchitecturalheritage.AsURAbegantoexhibit, moreandmorecommunitymembersbecameawareofandinvolvedinheritage management.
Phase3:ActiveEngagement(2012to2014):Thethirdphaseoftheprojectwas anactiveengagementexerciseonbehalfofURAtotrytobringtheRailCorridorto theattentionofmorepeopleandcommunitiesandtoinvolvethemintheplanning andfeedbackprocess.Intheprocess,communitymemberswereabletoacquirea moresystematicknowledgeofheritagemanagement.
InMarch2012,theRailCorridorConsultationGroupunderwentexpansionand wasrebrandedastheRailCorridorPartnership.Thistransformationaimedto fortifythecollaborationamongthepublicsector,interestgroups,andindividuals engagedwiththeRailCorridor,fosteringa'moreinclusive'environment.Come Aprilofthesameyear,theTanjongPagarRailwayStationhosteditsinaugural majorevent,theFemaleandNüyouValentinoCatwalkfashionshow.Furthermore, theUrbanRedevelopmentAuthority(URA)hascollaboratedwithvarious organizationstoorchestrateasequenceofevents,includinganotable11-kilometer cross-countryracethathasgarneredsignificantsuccessandattention
Phase4:FeedbackonConceptMasterPlan(2015to2016):InPhase4,URA beganformalizingtheplanningprocessfortheRailCorridor,wherecommunity andpublicinputwasalsogivenspace.
OnMarch18,2015,theUrbanRedevelopmentAuthority(URA)initiatedthe"Rail Corridor-AnInspiredandExtraordinaryCommunitySpace"RequestforProposal (RFP)ThesuccessfulcandidatesoftheRFPwererevealedinNovember2015,and theirproposalsweredisplayedforpublicviewing.
Phase5:Beginningofactualconstruction(2016to2018):InPhase5,URA
announcedthatimprovementsalongtheRailCorridorwouldbegin.The"Friends ofRailCorridor"programwaslaunched.Atthisstage,theawarenessandsystemof communityparticipationinheritagemanagementinSingaporehasmaturedtoa levelwheretherearemechanismsforproactiveorganizationofactivitiesand participationinheritagemanagementthroughtheofficialinstitution,theNparks. Communitiesareinformedofhowtoparticipateandareassuredofhavingtheir voicesheard.
OnOctober21,2017,theNationalParksBoard(NParks)andtheUrban RedevelopmentAuthority(URA)announcedthatimprovementworksalongthe RailCorridorwouldofficiallybeginin2018.URAsaidthatsince2016,URAhas conductedaseriesofcommunityexhibitionsandworkshopstocollectfeedback andopinionsfromthecommunitiesalongthecorridor.Thepublicexhibitionwas heldonOctober29,2017,attheBukitTimahNatureReserveVisitorCenter.Ma NatureReserveVisitorCenter.
Atthesametime,theformationof'FriendsofRailCorridor(FRC)'wasannounced. Thisorganizationwillconsistofmembersfromdifferentbackgroundstohelp gatherpublicopinionsaswellasconductactivities.
Throughthetimeline,itcanbeseenthatcommunityparticipationhasbeena majorpartoftheRailCorridorproject.However,itisnotdifficulttofindthat communitydecisionsarenotdirectlyimplementeduntilthegovernment
intervenes,becauselandinSingaporeisstate-owned,andindividualsaswellas NGOsandotherorganizationsdonothavetherighttodirectlytransformthe railroadheritage.Inacountrywherethelandisstate-owned,thegovernment chosetoworkwiththecommunitytoreachacommunity-ledheritage managementprogramtomakeupfortheshortcomingsofthetraditional"topdown"managementmodelandtomakeupfortheopacityofthesystemthrough timelypresentationsandworkshops,sothatthecommunity'sviewscouldbe widelyadopted.Duringthisperiod,thegovernmenthasalsobeenproactive,butits goalistobringpeoplebacktothelandintheRailCorridor,nottomakeplanning decisionsonbehalfofcommunitymembersIntheseways,therelationship betweenthegovernmentandthecommunityhasbeenharmonized,anditcanbe saidthatbothcommunityandgovernmentinvolvementwereintegraltothe creationoftheRailCorridor
4.2Communities’EngagementinRailCorridor’s management
OneofthemostimportantfeaturesoftheRailCorridorisitscommunity involvement.Whenitcomestocommunityinvolvementintheproject,theinitial 'Wesupportthegreencorridor'campaign,runbyactivistsandNGOsin2011, gainedwidespreadcommunitysupport.However,atthispointintime,the
communityhadnotyetbeeninvolvedinthemanagementoftheheritageandhad onlyexpressedtheirdesiretopreservethegreencorridorspace.Itwasnotuntil URAconductedacommunityworkshopthatcommunitymemberswereactually involvedinthecampaign,contributingideasfortheRailCorridor.Atthispoint, however,communitymemberswerestillbeingpassivelyaskedfortheiropinions bythegovernment.
Thisisunderstandablebecause,atthebeginningoftheRailCorridor,many communitymembersalongthecorridorwereunawareoftheplansfortheRail Corridor.Ittooktimeforthegovernmenttomakepeoplerealizethatwhatisnow theKTMRailCorridorhasbecomeapublicgreenspace,andtobringpeopleback tothisgreenspaceandmakeitaccessible.Asignofthematurityofthis transformationwasprobablytheformationoftheFriendsofRailCorridor(FRC)in 2017.Thisgroupoflocalcommunitymembers,aswellasprofessionals,volunteers, andstudentsfromavarietyofindustries,allowsthecommunity'svoicetobeheard inatimelyandproactivemanner.
TheFRCorganizationwasestablishedaspartoftheFriendsofNparksPark program.ItisbasedonthesuccessoftheFriendsofUbinNetwork(FUN).These successeshavegiventheURAadegreeofconfidencethatthereisapracticalbasis forattemptingcommunity-managedheritageprojects.TheFriendsoftheParks wanttoreturnsovereigntyovertheparksandheritagetothecommunityandthe
people,andatthesametimeplayamoreactiveroleinpromotingthepositiveand responsibleuseoftheparks.AccordingtotheofficialwebsiteofNparks,sincethe launchoftheFriendsofParksinitiativein2016,thenumberofsuchorganizations hasgrownto14,includingbutnotlimitedtoFriendsofRailCorridor,Friendsof SungeiBulohWetland,FriendsofReserve,FriendsofSungeiBulohWetland, FriendsoftheParks,FriendsoftheSungeiBulohWetland,andFriendsoftheParks. Reserve,FriendsofTreesSg,FriendsofUbinNetwork(FUN),andmanymore.
The"FriendsofParks"systemconsistsoffourbroadcomponents:chairperson, vice-chairperson,othermembers,parkusers,andstakeholders,allofwhomare membersofthecommunityandrelatedprofessionals.Thesemembersarefromthe communityandrelatedprofessionalsanddonotincludegovernmentmembers.
Accordingtoofficialdata,Amongthechairpersonsareuniversitylecturers,NGO leadersandothervolunteers.
figure9Figure:generalstructureofcommunitiesundertheFriendsoftheParksscheme
TheoperationoftheFriendsoftheParkssystemcanbebroadlydividedintothree phases:conceptualization,projectdevelopment,andmanagementand maintenance.
Thefirstphase,theconceptualizationwasanattempttobringcommunity inputintotheparkplanbygatheringinputfromthepublicthroughjoint groundobservations,interviews,focusgroupdiscussionsandsurveys.after thecollectionwascomplete,aperiodofrefinementandfeedbackwasrequired.
Aperiodofrefinementandfeedbackisrequiredtodevelopaworkable proposal.Thefirstphaseusuallytakesfourtosixmonths.
Thesecondphaseisthedevelopmentproject,whichistheactualremodeling orconstruction.Thisprocessinvolvesprofessionalsaswellascommunity membersintheconstructionoftheparkthroughavarietyofactivities including,butnotlimitedto,thepropagationandplantingofshrubsandtrees, installationandpaintingofamenities,andmore.
Thethirdphaseistheuseandmaintenancemanagementoftheparkafter constructioniscompleted.Astheparkisused,thecommunitycanwork togethertoorganizeeventsandactivelyprovidefeedbacktoimprovetheuseof thepark
ThebrillianceoftheFriendsoftheParkssystemisthatitattemptstofullymobilize thelocalcommunity.Communityresidentsareproactivelyinvolvedineveryaspect
ofparkmanagement,andfeedbackfromlocalcommunityvoicesistimelyand effective,whichmaintainslocalenthusiasmformaintainingtheparkorheritage.In contrast,insomecasesandregions,evenwithfeedbacksystemsinplace,people arenotinclinedtoexpresstheiropinionsandadoptanegativeattitudetowards communityfeedback.Thereasonforthisisalackofconfidenceinthelocal feedbackandopinion-gatheringsystem(Jietal.,2021).
Howtomaintaintheenthusiasmandconfidenceoflocalcommunitymembersin heritagemanagementisatopicthatisoftenoverlooked.Iftheenthusiasmofthe localcommunityisnotmaintainedandfeedbackisnotgiven,thecommunitywill quicklygiveuponcommunicatingwiththegovernment,anditisthislackof communicationthatwillleadtoincreasedconflictbetweenthecommunityandthe government.Communitieswillcomplainthatthegovernmentdoesn'tunderstand thetruevalueoftheirheritage,andthegovernmentwillcomplainthatthelocal communityisstubbornandwon'tacceptcooperation,whichismorethanjusta simpleconflictofinterest.ThisisparticularlyacuteincountrieslikeSingapore wherelandisnationalized.Aprolongedstalematecanleadtoaviciouscircleof conflictinwhichheritageisnotproperlymanagedandpreserved
However,theRailCorridorisnotcurrentlyexperiencingsuchproblems,asthe community'sfeedbackfromtheoutsethasbeeneffective,withURAensuringthat thevoicesofthecommunityareheard,andwithexhibitionsoftheworkcarried
outintheURAhalls,whichhavehelpedtostrengthentheconfidenceofmembers ofthecommunityandtheirwillingnesstocontributetotheplanningand constructionoftheRailCorridor.Thecreationofthe"FriendsofthePark"system hasalsofosteredasenseofownershipamongcommunitymembers,makingthem realizethattheheritageandtheparkbelongtothecommunityandtothemselves, andthustheyhavebeenabletoparticipateenthusiasticallyandvoluntarilyinthe constructionandmaintenanceofthecommunity.Thecreationofthissystemhas fosteredasenseof'ownership'amongstcommunitymembers.
4.3TheDynamicNatureofHeritageandCommunity
AheritagemanagementprogramisnotastaticendeavorConservationstrategies maychangeovertimeinresponsetotheneedsofthecommunity,inwhichcase communitygovernanceofheritageprogramscanbeadvantageous
Astimeschange,theychangetheneedsofthepeoplealongtherailcorridor,and communitiesarealwaysmoresensitivetolocalneedsbecausetheyaretheusersof theland.Thisisevidencedbythefactthattheearliestproposalsfor'green corridors'wereinitiatedbylocalcommunitiesandsocialorganizations.Therefore, itisessentialtotrytoinvolvethecommunityinthelong-termmanagementand maintenanceoftheheritage,notonlyatthebeginningofthecreationoftheRail
Corridorbutalsoinordertocreateasustainableheritagemanagementprogram afterward,thecommunity'sviewsmustbevaluedandquicklyconsidered.
AnexampleofthisistheconversationattheSingaporePavilion'SpacetoImagine, RoomforEveryone',ViennaBiennale(15thInternationalArchitectureExhibition), whereMrTanSeeNin,SeniorDirectorofURA,MrTanSeeNin,whowasalsoan earlyparticipantinthegreencorridorcampaign,mentionedthatduringthe collectionofideas,theycameacrossanelderlymaninawheelchair,whoalso wantedtomakeuseofthespaceintheRailCorridor.However,atthattime,the conditionoftheRailCorridorwasnotidealanditwasdifficultforwheelchairusers topassthrough.ThecurrentRailCorridorwebsitehaspostedatableexplaining theaccessibilityoftheRailCorridor.
figure10RailCorridor(North)accessibilitytable,source:RailCorridorofficialsite
ThisisinlinewiththeHULapproach,whichemphasizesthe"dynamic"natureof urbanandheritageplanning,andtheneedforplannerstolearnfromthe communityaboutlocalhistory,traditions,values,etc,andtofacilitatethe resolutionofdisputesbetweenconflictinginterestsThismeansthatevenoutside professionalsarenotassensitivetolocalconditionsaslocalcommunitymembers andthatthegovernmentneedstodrawontheviewsofthelocalcommunityin
ordertogatherinformationandformulateplansandstrategies.Thisiswhatthe RailCorridortriestoachieve,bybringingtogetherlocalcommunitymembersand professionalsfromvarioussectors,theRailCorridorcreatesasensitiveand dynamicfeedbacksystem.Thehighvolumeofactivityandusersallowsfortimely exposureofproblemsandfeedbackonneeds.
4.4Government'sRoleinHeritageManagement
OneofthemostinterestingaspectsoftheRailCorridormanagementmodelisthat itdoesnotappeartobepartofthetraditional"top-down"or"bottom-up"model.
Top-down:Inatop-downapproach,theprojectisledbythegovernmentand decisionsandplanningaremadebyacentralauthoritysuchasagovernment agencyorheritageorganization.
Bottom-up:Thebottom-upapproachconsistsofproactiveorganizingbylocal communities,stakeholdersandgrass-rootsorganizations,leadingtodecisionmakingand,ultimately,implementation.
LandinSingaporeisownedbythenationalgovernment,andsimilarlyincountries suchasChinaInthesecountries,atop-downmanagementmodelisthenorm Stateownershipoflandandheritagemakesiteasierforthestatetomanagethem inaunifiedmannerandreducestheresistanceitencountersintheprocess.The
government'smacroscopicgraspcanhelpallocateresourcesmorerationally, whichcanlargelyreducetheuncertaintyfacedbycommercialplayersinlandreuse andredevelopment(Lietal.,2018).However,incontrast,thereisariskof generalizingthevalueoftheheritage,whichmakesitdifficulttoprotectthe significanceoftheheritage,underminestheauthenticityoftheheritage,and createsopacityinthemanagementoftheheritage.Thisiswhyweoftensee Westernscholarscriticizingthetraditional"top-down"approach.The"top-down" approachisoftenseenasahigh-qualityapproachbecauseitinvolvesmany stakeholdersandensuresthatpoliciesareformulatedinaccordancewithlocal realitiesandthesignificanceoftheheritageitself(Glackin&Dionísio,2016) However,thebottom-upapproachisnotauniversalanswertoallproblemsSome scholarshavefoundthatcommunity-initiated"bottom-up"strategiesarenot alwayseffectiveinareaswhereawarenessofheritageconservationislow,orwhere regulatorymechanismsarenotwelldeveloped(HWangetal,2021)
Regardlessofthe"top-down"versus"bottom-up"argument.Letuslookbackatthe caseoftheRailCorridor.Whatwastheroleofthegovernmentinthisproject?In thehistoryofthetransformationoftheKTMRailwayintotheRailCorridor,itis easytoseethatthegovernmenthasalwaysbeeninapassiveposition,orithas activelyplaceditselfinapassivepositionWhentheSingaporeanandMalaysian governmentsfirstagreedontheKTMRailCorridor,theydidnottakethetimeto releasefutureplansfortheland,whetheritwastheirintentiontodosoorwhether
theyencounteredanydifficulties,butthistimegaveactivistsandNGOstimetoplan andcampaign.Soon,campaignssuchas"WeSupporttheGreenCorridor"becamea hugesuccess,whichaddedtothecommunityandNGO'svoice.Atthispoint,URA begantocollectandcontacteventorganizerstogatherinput,ratherthantryingto comeupwithaproposalandaskforinput.URAthenbegantoplaneventstogather inputfromawiderrangeofpeopleandtoorganizeandplanawareness-raising sessions.Afterthis,URAattemptedtoreorganizethepreviouseventorganizers intoaneworganization,"FriendsoftheRailCorridor",sothattheycouldcontinue thefutureactivitiesandmanagementoftheRailCorridor
URAhastakenaverypassiveroleinthemanagementoftheRailCorridor.Fromthe outset,itappearedtobeacompletely"bottom-up"model,withlocalresidentsand NGOsadvocatingandpeoplestillparticipatingintheactivities.However,the problemisthatthelandbelongstothegovernment,andthehighestlevelof managementwillnotbeinthehandsofthelocalcommunity,whichmakesit difficultforaprojectaslargeastheRailCorridortobemanagedfromthebottom up.However,thegovernmentdidnottrytotakeontheroleof'manager',and insteadchosetolistentothecommunityandtheNSS,allowingorganizationssuch astheNUStoconductworkshopstoprovideinputintotheplanningoftheproject
Atthesametime,theorganizationoftheeventwasincorporatedintothe"Friends oftheParks"groupunderNparks,whichwasendorsedbythegovernmentAt everystepoftheway,URAdidnotseemtobetakingtheinitiativetomakepolicy
decisions,butitwasawin-winsituationinwhichthecommunity'senthusiasm continuedtogrowandthegovernmentwasperhapsrelievedofthepressureto makedecisions.
NotonlyinthecreationoftheRailCorridorbutalsointhesubsequent management,thegovernment'sinterventionhasbeenminimalThecurrent managementbodyoftheRailCorridor,theFRC,wasinitiatedbyagovernment department,butitisstillnot"top-down"inthetraditionalsense.Themembersof theFRCincludeawiderangeofpeoplefromallwalksoflife,includingbutnot limitedtostudents,aswellasresidentsandprofessionals.Theseindividualsare notgovernmentemployeesandtheirdecisionsaregearedtowardstheneedsofthe community.
5.Conclusion
ThecasestudyoftheRailCorridorshowsthatthesuccessoftheRailCorridor cannotbeseparatedfromtheactivitiesofthelocalcommunityandsocial organizations,aswellastheeffectiveandpositivefeedbackfromthegovernment ontheopinionsofthelocalcommunityTheenthusiasticparticipationof communitymembersandthepositiveattemptsoftheURAhaveformedavirtuous circle,makingtheRailCorridoroneofthemostexemplarycasesofcommunity participationinheritagegovernance.Itsexperiencecanbesummarizedbythe authorintothefollowingpoints:
AdvancedawarenessofthecommunityandNGOs:Intheearlystageof returningtheKTMrailland,thegovernmentdidnotannouncethelanduse ThecommunityandNGOsrealizedtheimportanceofthislandintimeandtook actionstocreateawebsiteandpublicity.Itwastheseactionsthatcreatedthe impactthatlaidthefoundationforthe'greencorridor'andthesubsequent developmentoftheRailCorridor.
Governmentempowermentofthecommunity:Thegovernmenthastakena passiveroleinthemanagementoftheRailCorridor,andhasgreatly empoweredthecommunityandoutsidestakeholderstoplanforthecorridor. Manyeventsandworkshopshavebeenorganizedtomakethecommunity realizethattheyarethe"owners"oftheland.Publicexhibitionsandother
eventsstimulatedinterestandasenseofownership,enablingmorepeopleto becomeinvolvedintheplanningoftheRailCorridor.
Goodandtimelyfeedbackandmonitoring:TheRailCorridorattemptsto includeeventplannersandavarietyofcommunitymembersand organizationsinthemanagementoftheRailCorridor.Thishashelpedtocreate atimelyandeffectivefeedbackandmonitoringmechanismtoprotectthelocal community'senthusiasmfortheheritage.Suchanorganizationisatestament tothefactthatcommunityinvolvementisthekeytoensuringthesustainability ofheritage
Insummary,althoughtheRailCorridorisaveryspecialcase,mostofthelessons learnedcanbeappliedinotherpartsoftheworld.Theexperienceofeducatingthe localcommunityandtryingtoestablishaself-managingheritagemanagement programforthelocalcommunityisworthlearningfrom.Moreimportantly,it providesawayforcommunitiesandgovernmentstoworktogetherinawaythat offersnewwaysofthinkingandnewstrategiesforcommunitiesinareasthathave longbeencriticizedforhavinga"top-down"system.
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