CHOQUEQUIRAO: CRIB OF GOLD

Picture from http://www.choquequirao.com

I. Identification

1. The Issue

In the middle-southern region of Peru, over the western slope of the Vilcabamba valley and mountain range, in the district of Santa Teresa, very close to the famous and historic sanctuary of Machu Picchu, there is an archeological Inca complex called Choquequirao. In the Quechua Andean language, the word ‘Chuqui K'iraw’ (Choquequirao) means “Crib of Gold”. Archeologists presume that Choquequirao is one of the many lost cities where the Incas took refuge around 1536, soon after the arrival of the Spanish conquistadors.

The complex is much more than a set of edifications and archaeological vestiges. Its strategic position allows this singular sanctuary to include what it is one of the most extraordinary altitudinal transects in the country. It is surrounded by a series of different ecosystems ranging from snow capped mountains (the Andes), with more than 6,000 meters above sea level, to sweltering tropical valleys, at just 1,800 meters above sea level.

This astonishing archaeological complex consists of nine architectonic stone groups. It has hundreds of platforms, rooms and irrigation systems. The first restoration began in 1960. However, it is not until 1993, that serious restoration and consolidation work was initiated by Peruvian experts under the COPESCO Plan and the Cusco National Institute of Culture. At this time, only 30% of the colossal complex, a total of 1,810 hectares, has been cleared and rehabilitated for both domestic and foreign visitation (IPERU CUSCO, 2004).

The access to Choquequirao is extremely limited. You can only arrive by foot or by horse and/or mule. Currently, there are no proper lodging accommodations or restaurants in the area. This archaeological site, which is still under a clearing and restoration process, has the vast potential of becoming Peru’s next main Inca cultural heritage attraction.

To promote and develop tourism in Peru, the government has developed a master plan called the COPESCO Plan. The guidelines and procedures established under this Plan and which will eventually be applied to promote visitation to Choquequirao are still unclear in terms of their treatment towards the protection of the archaeological site’s patrimony and its immediate surroundings, which include poor rural communities and a rich biodiversity. The main issue, therefore, is to examine whether the set of government policies that are in place, particularly the country’s national Tourism Policy, are adequate enough to guarantee Choquequirao’s preservation and conservation as both a cultural heritage and tourism asset for future generations to enjoy.

2. Description

To understand the set of policies and best practices that need to come into play for the sustainable protection and preservation of Choquequirao, it is important to examine the results of the report produced by the World Heritage Center, the World Conservation Union (IUCN) and the International Council on Monuments and Sites (ICOMOS) mission that visited the historic sanctuary of Machu Picchu in October of 1999. This report sets out the planning and management arrangements measures taken by Peru’s National Institute for Natural Resources (INRENA), the National Institute for Culture (INC) and the Ministry of Foreign Affairs to maintain compliance with the criteria that was established for inscribing Machu Picchu in the World Heritage List back in 1983. It was under cultural criteria (i) and (iii) in recognition of the testimony to the Inca civilization and under natural criteria (ii) and (iii), for man’s interaction with his natural environment and for the beauty of its landscape, that Machu Picchu was awarded the World Heritage recognition and status that it enjoys today.

The mission concluded that any project for developing or intervention in Machu Picchu have to contemplate the overall context of the site and consider the specific criteria applied for the inscription on the World Heritage List. Moreover, since the mission noticed very strong tourism and demographic pressure particularly in the surrounding area of the Ciudadela, they agreed “any intervention in this area would very seriously affect the World Heritage value, the integrity and authenticity of the site.” (UNESCO - World Heritage Centre, 1999, p.21). In addition, the mission concluded that decisions related to the access to the Ciudadela could only be taken with reference to the carrying capacity of the Sanctuary and its components.

At this time, the national government has already established a Tourism Master Plan in order to protect and preserve the main historic, natural and cultural sites in the country. Nevertheless, in the case of Choquequirao is necessary to established in addition a Management Plan by taking the best practices and regulations already established in the Master Plan of Machu Picchu. Definitively it urges the national government to ensure that all institutions (INRENA, INC, COPESCO Plan, among others), authorities and agencies involved in the development of Choquequirao give their full support to its Management Plan, as the only way to be effectively and efficiently executed.

3. Related Cases

There are many related cases to the one discussed in this paper. One of the closest is the case of Gyza Plateau in Egypt (Hawass, 1998). The author takes the site of Gyza Pyramids as a successful example of the application of the site management strategy as part of its conservation master plan; this master plan for the Gyza Plateau was carried out through three different phases, with the support of the Egypt government and the UNESCO; however, it is important to mention that there are other archeological areas in Egypt that urgently need a site management plan, such as Luxor and Abu Simbel.

Another important case is Tongariro National Park, an outstanding international site in New Zealand. Many conservation and management strategies were carried out by UNESCO and the Department of Conservation of New Zealand, in charge of its supervision till year 2012 according to the Tongariro National Park Draft Management Plan (2003). Finally, under the revised criteria describing cultural landscapes, this site was inscribed on the World Heritage List in 1993.

4. Author and Date

Tathiana Del-Arroyo, April , 2005
Master of Tourism Administration Candidate
Department of Tourism and Hospitality Management
School of Business and
The George Washington University
600 21st Street, NW
Washington D.C., 20052
E-mail: tathiana@gwu.edu

II. Policy Impacts

5. Geographic Location

Picture from http://www.comunidadandina.org/turismo/arqueologicas/choquequirao.htm

The Republic of Peru is located in the west side of the South American continent. It is the third more extensive country in South America, after Brazil and Argentina. Its surface is about 1.285.216 sq. km and, according to the INEI (National Institute of Statistics and Informatics), the estimate population for the year 2004 is about 27 million, with a growth rate of 1.46%.

6. Social

An appropriated management of the Choquequirao complex would have appositive impact on quality of live of the rural communities by increasing the number of jobs in the area as a result of both domestic and foreign tourism growth, consequence of promoting the site broadly. In fact, this year FONCODES is financing a project which main goal is training the local population in the surroundings of Choquequirao on small-business management, in order to generate incomes for the community and at the same time, improving the services offered to the tourists.

However, the affluence of tourists also might have a negative impact on the development of Choquequirao as a main tourism destination, in terms of carrying capacity. The Management Plan has to include a carrying capacity analysis and establish a “threshold” limitation in the archaeological site, essentially with the support of the local people, in order to avoiding damage the complex.

7. Environmental

The impact of the tourism on the natural environment and rich biodiversity of Choquequirao is also closely related to the management of its carrying capacity. The consequences of an increasing number of visitors include problems of soil erosion, erosion, littering and waste disposal. On the other hand, in 2002 a Peruvian congressman demanded that Choquequirao should be declared as ‘in-emergency’ site, in order to implement some measures about its conservation and surveillance, with the purpose of integrated it to the touristy-archaeological and ecological first-class patrimony (Revista Andares, 2002, p.4). After this demand, it has been considered to create an interinstitutional committee for the design and development of the intervention of the complex, composed by the INC, the COPESCO Plan, INRENA, the Ministry of Transportation and Communications, the local municipalities and some entrepreneurs. Choquequirao definitively goes beyond the strictly archaeological scene, including its environmental and social surroundings; that it is one of the reasons for which the site fills out all the requirements and conditions to become in a first-class touristy complex, and in an excellent and competitive alternative to the historical sanctuary of Machu Picchu.

8. Economic

Currently, Choquequirao offers visitors only camp areas with minimum basic sanitation services. There is a schedule for visitation (from 8am to 5pm) and the National Institute of Culture charges a $3 entrance fee per visitor to enter the complex. There is no data regarding the number of visitors nor is there an estimate of how much revenues are being generated . However, on a larger scale, the reconstruction and consolidation of the site and the evaluation of its tourist potential is being financed with a debt conversion signed by France and Peru in October 2002. This initial financing covers small infrastructure works that will improve the accessibility and reception of tourists to the site. Furthermore, in 2002, a US$5 million dollar grant provided by the French government has been destined to the planning of the Ecological Park of Choquequirao project.

In addition, the COPESCO Plan is in the process of negotiating, with the support of the Office of the First Lady of Peru, Elian Karp de Toledo, different international financial resources (both bilateral and multilateral institutions) to carry out additional studies necessary for planning the interventions that will be required to convert Choquequirao into a world-class tourist destination. As Elian Karp said in an interview: “The idea is that Choquequirao becomes a huge intangible zone that will preserve the biodiversity. Everything needs to be planned very carefully to avoid repeating the experience of Machu Picchu and Aguas Calientes, and therefore, allow Peru to develop its tourism attractions potential, by taking advantage of its comparative advantages.” (Editora El Peruano, 2002)

9. World Heritage List

Choquequirao has the potential of being considered a World Heritage Site, like Machu Picchu. To be considered and included on the World Heritage List, the Peruvian government would have to comply with the requirements set forth under the United Nations Educational, Scientific and Cultural Organization (UNESCO) World Heritage Convention. It should be noted that Peru has five of its invaluable archeological sites included on this list:

Other Peruvian locations in the UNESCO World Heritage list are:

10. Suggested Interventions

See section number 13

III. Legal Clusters

11. Discourse and Status/Policy Issue

In the case of Choquequirao, although the Peruvian government has already set up a tourism policy to protect the site and its biodiversity, the COPESCO Plan still lacks funding to undertake the necessary works that will allow a gradual visitation of the area.

There are some efforts from other national institutions, as FONCODES, which recognizes the need of boosting the complex and its surroundings, and at the same time, establishing adequate services in the area for the incoming visitors. Choquequirao is integrated by a set of tourist attractions (cultural, environmental and historical) but poor transportation services and the scarcity of appropriate lodging accommodations and restaurants have not permitted the potential development of the whole site, and consequently, the generation of employment and good quality local services.

In addition, Peru, as one of the countries that have signed the World Heritage Convention, can pledge to protect Choquequirao, as part of their natural and historical heritage. To be included on the World Heritage List, the site must be of exceptional universal value and meet at least one out of ten selection criteria, and although the Choquequirao site, as it happened with the sanctuary of Machu Picchu, fits in more than one of those selection requirements, the application of the (iii) criteria in this case is undeniable: “bear a unique or at least exceptional testimony to a cultural tradition or to a civilization which is living or which has disappeared” (“Operational Guidelines for the Implementation”, 2005, p.19).

12. Forum and Scope/Existing Policy Framework:

International Forum:
As it was previously mentioned, the case of Choquequirao should be discussed with the World Heritage Committee in order to be included on the World Heritage List due to its significant cultural heritage and exceptional natural biodiversity.

National Forum:
The Peruvian government, through its Minister of Foreign Trade and Tourism (MINCETUR ), has established a legal framework for the development of tourism in Peru, including guidelines and procedures to protect the national patrimony (cultural sites, National parks, etc.), and to regulate tourists and the different services related to the industry (travel agencies, restaurants, hotels, etc). According to the Law for the Development of the Touristy Activity, the national government aims to stimulate the development of the touristy activity in order to collaborate to the economic growth and the social development of the country, and by then generating the most favorable conditions for the development of the private investments. Moreover, one of the most important goals is to establish the rational and sustainable usage of the cultural and natural patrimony of Peru. (MINCETUR, 1998)

13. Decision Breadth/Stakeholders/Policy Actors

The major stakeholders involved are as follows:

14. Legal Standing/Legal Regulatory Framework/Suggested Policy
Intervention:

Although there is a legal framework already established by the Peruvian government related to the development of tourism in the country, the reinforcement of the related laws is crucial in the case of Choquequirao, to assure the appropriate conservation and protection of the site. Recently it was published the PENTUR Plan (2005-2015), which is the National Strategic Plan for Tourism , prepared by the MINCETUR. The main objective is to reach the optimal sustainable tourism development in Peru by participating both public and private sector and the civil society. The PENTUR will also aim to review the tourism policies and practices under the Law for the Development of the Touristy Activity and establish a stable legal framework to promoting the development of the tourism sector and the rational usage and conservation of the main cultural and natural Peruvian patrimony.

IV. Trade Clusters

15. Type of Measure

The Government of Peru should enforce the control of procedures and regulations for visiting Choquequirao, assisted by people from local communities (Cachora, Yanama, Huanipaca, Mollepata, Santa Teresa and other nearby towns). In addition, the national government has to support those communities surrounding the site by providing infrastructure and helping the locals to improve the services they offer (sanitation services, transportation, etc.) to the tourists visiting the complex.

All other measures to be taken by the national government are directed to ensure that the Management Plan for Choquequirao complies with the criteria and standards that are mandatory for being considered a World Heritage Site.

16. Relation of Trade Measure to Environmental/Tourism Impact

By adopting this measure or set of measures, the Choquequirao site and its immediate surroundings will be less susceptible to the negative environmental impacts brought on by increased visitation.

a. Directly Related to Product: The Management Plan for Choquequirao. Also, measures related to infrastructure and carrying capacity analysis (construction of proper lodging accommodation in the surrounding towns and an adequate control of the number of tourist visiting the complex).
b. Indirectly Related to Product: Worldwide promotion of the country (Peru) as a wonderful tourism/ecotourism destination.
c. Not Related to Product: Everything tourism-related in Peru, is related to Choquequirao in one way or another.
d. Related to Process: The inclusion of Choquequirao in the World Heritage List

17. Trade Product Identification/Trade and Services

Choquequirao is an archaeological pre-Colombian site that, if properly managed will preserve its cultural heritage and become an important international tourist destination

18. Economic Data of the Tourism sector

According to the World Tourism Organization, in 2003 the tourism expenditure in Peru ascended to US$959 million and it represents 1.6% of the Gross Domestic Product for that year.

19. Impact of Trade Restriction

There are no trade restrictions that impede visitors from visiting Choquequirao. Its accessibility, however, is currently difficult which is bound to change in the near future.

20. Industry Sector

The Choquequirao archaeological site concerns both the cultural patrimony and the tourism sector of Peru, especially since this sector has a key role in the economy of the country. In 2004, Peru received a monthly average of ninety thousands foreign visitors . According to the Peruvian Ministry of Foreign Trade and Tourism, the number of visitors has increased from year to year and this trend will continue for the next ten years.

Total Arrivals of Foreign Visitors to Perú (1996-2003)

• Zone of Residence	1996	1997	1998	1999	2000	2001	2002	2003
  NORTH AMERICA	148994	168188	203909	195126	218393	220047	234463	242540
  CENTRAL AMERICA	10162	11536	12814	12599	13704	14845	15668	15738
  SOUTH AMERICA	210661	252068	294687	257622	302847	298838	325789	371059
  EUROPE	137748	140299	171618	177084	201890	212574	232443	242652
  ASIA	34918	28009	29622	34220	43881	34659	41570	43754
  AFRICA	1105	1388	1690	1402	1699	1882	1948	1992
  AUSTRALIA, NEW ZEALAND AND PACIFIC ISLANDS	8029	9483	10702	11269	13213	13505	13587	15690

21. Exporters and Importers:

Exporters
Foreign visitors to Peru and Choquequirao

Importers
Domestic visitors and domestic tourism suppliers of services

V. Macro/Environment Clusters/Tourism Policy Clusters

22. Environmental Problem Type/ Environmental Aspects

The increase in visitation in Choquequirao, if not properly managed, can result in negative social and environmental impacts such as: rural migration (lack of jobs in the area), deforestation and the consequent biodiversity loss, cultural deterioration (vandalism) and pilferage), etc. A frequent problem at the archaeological sites in countries such as Mexico, Peru and Egypt is that the guards of the sites usually sell artifacts to the tourists, as an extra income for their pitiable salaries. Furthermore, degradation of cultural sites may occur when historic sites are unprotected and the traditionally built environment is replaced or virtually disappears (UNEP, 2002).

23. Resource Impact and Effect

The sustainable management of the tourism in Choquequirao and its natural resources will bring a positive impact on the conservation and the protection of the national heritage. The local communities will obtain good benefits by the construction of different facilities and services that otherwise would not have been developed. Other positive impact of the tourism is the creation of jobs, an incentive to decrease emigration from rural areas.

24. Urgency and Lifetime/Urgency and Policy Review

There is a tremendous urgency to include Choquequirao on the World Heritage List and develop a Management Plan to be strictly carried out. The intervention of the national government and other institutions is a key factor for reaching these goals; otherwise the cultural, historical and natural patrimony of the country will be seriously and irreversibly damaged.

25. Substitutes/Alternative Policies

Besides the legal framework already mentioned, and the possible intervention of foreign governments and UNESCO and other international organizations, there are no other alternative policies to protect the site.

VI. Other Factors

26. Culture

Although the Peruvian government is willing to protect Choquequirao, the culture of “being a developing country” will always prevail in the government when it has to carry out a high magnitude project as it is the conservation of this complex, meaning to obtain financial aid from foreign sources.

27. Trans-Boundary Issues

There are no trans-boundary issues. However, there is a need to demarcate the boundaries of the areas of the complex to be protected and those to be opened for tourists’ visitation.

28. Rights

The indigenian communities living in the surroundings of the complex are still in the process of adapting themselves to the affluence of tourists to the site. They do not see the tourism flow as a negative issue while it is a continue source of income for the community. However, there are external tour operators and other foreign agents who have started investment on the ecotourism industry in Peru, focusing in Choquequirao, but they ignore or do not take into account the potential of those communities.

29. Relevant Literature

Department of Conservation – Te Papa Atawhai Tongariro/Taupo Conservancy (2003). Tongariro National Park Management Plan. Retrieved April 2005, from http://www.doc.govt.nz/index.html

Editora El Peruano (2002) Choquequirao abre sus puertas. Retrieved February 2005, from http://www.editoraperu.com.pe/elperuano/turismo/choqueq.htm

Emergencia en Choquequirao (2002). Revista Andares. Retrieved March 2005, from http://www3.larepublica.com.pe/SUPLEMEN/ANDARES/2002/0725/texto2.htm

Hawass, Zahi (1998), “Site Management: the response to tourism”, Museum International, Vol. 50, Issue 4; pp. 31-38

IPERU CUSCO (2004). Conjunto Arqueológico de Choquequirao. Cusco, Perú: Proyecto Especial Plan COPESCO

LaTorre, A. (2002, July 25). Choquequirao: recurso turístico de primer orden para proteger urgentemente. El Peruano, p. 6.

Lumbreras, L.G., Wust, W.H., Uccelli, R., Balaguer, A. (2001). Choqequirau, santuario histórico y ecológico. Lima: Fundación Telefónica.

Ministerio de Comercio Exterior y Turismo de la República del Perú (1998). Ley para el Desarrollo de la Actividad Turística. Retrieved March 15, 2005, from http://www.mincetur.gob.pe/turismo/LEGAL/Ley%2026961.htm

Ministerio de Comercio Exterior y Turismo de la República del Perú (2004). Plan Estratégico Nacional de Turismo.. Retrieved April 2005, from http://www.mincetur.gob.pe/TURISMO/OTROS/pentur/pentur.htm

Ochoa, R. (2000). Peregrinaje a Choquequirao y Vilcabamba, El Ultimo Bastión incaico. Revista Andares, Issue 33, pp. 6-15

Thomson, H. (2001). The White Rock: an Exploration of the Inca heartland. New York: The Overlook Press

United Nations Educational, Scientific and Cultural Organization (UNESCO) - World Heritage Centre (1999). Report of the World Heritage Centre-IUCN-ICOMOS Mission to the Historic Sanctuary of Machu Picchu, Peru, 18-25 October 1999. Retrieved April 2005, from http://whc.unesco.org/archive/99-209-inf21.pdf

United Nations Educational, Scientific and Cultural Organization (UNESCO) - World Heritage Centre (n.d.). World Heritage List. Retrieved April 2005, from http://whc.unesco.org/pg.cfm?cid=31

United Nations Educational, Scientific and Cultural Organization (UNESCO) - World Heritage Centre (2005). Operational Guidelines for the implementation of the World Heritage Convention. Retrieved April 2005, from http://whc.unesco.org/archive/opguide05-en.pdf

United Nations Environment Programme (UNEP) - Division of Technology, Industry, and Economics. (2002). Negative socio-cultural impacts from tourism. Retrieved April 2005, from http://www.unep.fr/pc/tourism/sust-tourism/soc-drawbacks.htm

VII. Conclusion

30. Policy Implications

Since Choquequirao is now being visited by hundreds of tourists, it is on its way to become into one of the Peru’s main destinations. The Peruvian government has to take action in terms of continuing with the restoration process inside the complex (Plan COPESCO has to be in charge of this aspect) and the development of the site, and apply a more strict tourism policy regarding to the procedures for visiting the area.

31. Recommendations

• • One of the main goals for the Peruvian government is getting the inclusion of Choquequirao on the World Heritage List. Although the inscription of a site on this list is not an easy task, it would be necessary in order to protect the archaeological complex by obtaining foreign aid in terms of doing a more effective monitor of the situation of Choquequirao.
  • Monitoring of the number of tourists visiting Choquequirao, as well as the social and environmental impacts, needs to be an inherent part of the Management Plan for the archaeological complex to ensure that the quantity of tourists arriving to the site does not overload its adequate carrying capacity.
  • Avoid jeopardizing the local communities’ economy, which is directly related to the visitation of Choquequirao, by an adequate support for the national government (infrastructure, sanitarian and other services, and appropriated training for the local tourist guides) and other stakeholders involved (private and governmental institutions, travel agencies, tour operators, etc).
  • The participation of the local communities in tourism development of the archaeological complex and its operation is definitively a very important factor for the conservation and sustainable use of the Coquequirao’s biodiversity.
  • The national government also has to provide the proper framework in terms of regulation and procedures to keep Choquequirao safe and clean. Plan COPESCO is a committed partner in this objective, but it cannot work by itself. It is necessary to obtain financial aid from foreign governments and international institutions. The UNESCO might have a very active participation in this issue, especially after including Choquequirao on the World Heritage List.