On the construction of ‘outstanding universal value’: Some comments on the implementation of the 1972 UNESCO World Heritage Convention

Abstract

A number of imbalances in the implementation of the World Heritage Convention and in the composition of the World Heritage List have recently been noted. This paper restates the intention of the Convention to establish a select list of cultural and natural heritage of ‘outstanding universal value’. Criteria established to assist in the assessment of this World Heritage value are noted here as being indistinct in their articulation of type and level of value and their wording is assessed as having made it difficult to ensure the recognition of interactions between people and the environment of ‘outstanding universal value’. In a recent initiative cultural landscapes of World Heritage value are now beginning to be inscribed in the World Heritage List and are interpreted as being just one part of the whole range of interactions between nature and culture. At its 20th session in December 1996 the World Heritage Committee will consider the development of an overarching Global Strategy for a representative World Heritage List and a single common set of criteria and conditions of integrity to be applied when assessing and evaluating both cultural and natural heritage as recommended by the ‘Expert Meeting on Evaluation of general principles and criteria for nominations of natural World Heritage sites’. The paper concludes by noting the pragmatic necessity of defining ‘outstanding universal value’ as an extraordinary combination of the unique and the representative.     

A review of the Global Strategy for a balanced,representative and credible World Heritage List 1994–2004

Abstract

A critical analysis is given of the decade of implementation of the ‘Global Strategy for a Balanced, Representative and Credible World Heritage List’, adopted by the World Heritage Committee in 1994, to highlight its successes but also its problems and pitfalls. This paper is structured around two key themes of the 1994 report on the Global Strategy. First, the need to rectify some apparent thematic, geographic and chronological imbalances and discrepancies on the World Heritage List is discussed. This first part demonstrates that some of these imbalances have not been rectified. It also puts forward reasons for this ongoing situation. The second part of the paper is concerned with the recommendation of the 1994 expert meeting on the Global Strategy to consider sites of (potential) outstanding universal value in their broad social and anthropological context. This part considers, in particular, efforts to encourage the participation and involvement of local and/or indigenous communities in the nomination, conservation and management of World Heritage sites. The paper concludes with some suggestions for a more successful implementation of the Global Strategy.     

The concept of ‘outstanding universal value’ in the World Heritage Convention

Abstract

The basic criterion for inclusion of a property on the World Heritage List is that of ‘outstanding universal value’, as defined in the 1972 UNESCO World Heritage Convention. The paper demonstrates the problems encountered in attempting to apply the concept of universality to material culture; this is reflected in the cultural and regional imbalances in the present List. It is recommended that there be a moratorium on the addition of further properties already well represented on the List and that active steps be taken to include types of cultural property and geocultural regions that are currently underrepresented, such as industrial heritage, cultural landscapes and nonmonumental cultures.     

Universal heritage meets local livelihoods: ‘awkward engagements’ at the world cultural heritage listing in Bali

In 2012 the UNESCO World Heritage Committee added to its World Heritage List the ‘Cultural Landscape of Bali Province: the subak system as a manifestation of the Tri Hita Karana Philosophy’. Barely a year later, UNESCO had become sufficiently concerned about reports of various problems that it advised the Government of Indonesia of these concerns. Through ethnographic study of the initial implementation of the listing, this article reveals problems of uncontrolled development, and disputes over the allocation of benefits to local communities, and challenges to effective governance. It focuses on two key locations of the site, offering an analysis of problems, their causes and effects. Beginning with the premise that the gulf of understanding between the global World Heritage system and local communities often creates a range of unintended consequences, this article reveals the many ‘awkward engagements’ that have emerged ‘on the ground’ in Bali as local agencies of government are left to their own devices to manage the World Heritage site.     

Universal,colonial, or Indonesian heritage? A multi-scalar approach to the historical representations and management of colonial heritage in the Old Town of Jakarta (Kota Tua) during its bid for World Heritage nomination in 2015–2018

ABSTRACT

Between 2015 and 2018 the Indonesian government unsuccessfully applied for World Heritage status for the old Dutch colonial neighborhood of Kota Tua in Jakarta. As this article aims to show, analyzing the process of writing a nomination dossier, especially in the case of a failed nomination, can be revealing in unraveling the inner workings of heritage conservation efforts and the many actors that are involved on different ‘scales’ and levels surrounding the heritage. As the project of writing the nomination dossier was delegated to a consortium of private actors from the elite circles of Jakarta, this article will finally address both the difficulties and advantages of involving the private sector in such nomination processes.     

Kakadu National Park World Heritage Site: Deconstructing the Debate, 1997–2003

The case of Kakadu National Park has had an unusually large amount of time and expense devoted to it in meetings of the World Heritage Bureau and the World Heritage Committee since 1997. Major controversy arose following the announcement that a new uranium mine would be developed at Jabiluka, located in an enclave surrounded by the World Heritage property, but not legally part of it. The explosive juxtaposition of issues concerning the trio of conservation of heritage values, uranium mining, and Aboriginal land rights inevitably led to strong reactions against the Federal Government's decision to allow mining, not least on the part of Australian and international non‐government organisations. It was felt that the mining development would jeopardise the integrity of the key values for which Kakadu had been inscribed on the World Heritage List. This paper attempts to unravel some of the strands of the ensuing debate — to at least begin to deconstruct the debate — that saw Kakadu almost placed on the List of World Heritage in Danger. This is an important task to attempt because there were many undercurrents to the publicly reported debate, and a large degree of ‘reading between the lines’ is needed to interpret official records of meetings adequately. The paper also attempts to throw some light on the forceful opposition to such a move on the part of the Australian Government, based in large part on its underlying developmentalist philosophy, and at a time when it was giving less than wholehearted support to many international agreements to which Australia is a signatory. Finally, it is hoped that an insight into the workings of the World Heritage Convention and its supporting bodies will be gained.     

THE ROLT MEMORIAL LECTURE 2013: THE PUBLIC BENEFIT OF INDUSTRIAL HERITAGE — TAKING A POSITIVE VIEW

Abstract

This paper contains a summary of the 2013 Rolt Memorial Lecture, delivered to the annual conference of the Association for Industrial Archaeology in Dundee on 11 August 2013. The lecture commenced by observing the extent to which Industrial Heritage has progressed in recent decades, noting that it is now embedded in many national institutions in the UK, and has been ‘mainstreamed’ into heritage more generally. However, it now faces several serious challenges, not least the diminishing number and increasing age of activists, together with cuts to the State sector. It is argued, nevertheless, that industrial heritage has more to offer now than ever before and that more effective political engagement is required to ensure that this is understood by those with power and influence over the historic environment. To illustrate this point, current work on the Industrial Heritage Strategy for Scotland is discussed, together with the potential impact of the UK’s latest industrial World Heritage nomination, the Forth Bridge.     

Indigenous free prior informed consent: a case for self determination in World Heritage nomination processes

Free prior informed consent is a critical concept in enacting the rights of Indigenous People according to the United Nations Declaration on the Rights of Indigenous Peoples. This paper outlines a case for the inclusion of free prior informed consent in World Heritage nomination processes and examines issues that are problematic when enacting free prior informed consent. Case research was used to analyse current issues in the potential nomination of certain areas of Cape York Peninsula, Australia. The authors’ reflexive engagement within this case offers insights into the praxis of developing a World Heritage nomination consent process. The outcomes of this research were: preconditions need to be addressed to avoid self-exclusion by indigenous representative organisations; the nature of consent needs to account for issues of representation and Indigenous ways of decision making; the power of veto needs to have formal recognition in the nomination process; and prioritising self-determination within free prior informed consent ensures the intent of the United Nations Declaration on the Rights of Indigenous Peoples. The paper contributes to the human rights agenda of Indigenous People and conservation management processes by helping address the issues that will be raised during a World Heritage nomination process.     

A Framework for Sustainable Heritage Management: A Study of UK Industrial Heritage Sites

In 2002, the World Heritage Committee declared heritage to be ‘an instrument for the sustainable development of all societies’. The term ‘sustainable development’, however, is inscribed with a complex economic, environmental and social agenda that challenges contemporary World Heritage management practice. This paper draws on a content analysis of six industrial UK World Heritage Site management plans. The analysis focuses on the extent that each plan integrates four key sustainability dimensions. Findings indicate that the planning frameworks and collaboration processes in operation at each site ensure conservation of the historical physical fabric but limit the development of a sustainable local cultural economy. A sustainable heritage management framework is presented based on the adoption of a long‐term strategic orientation and extensive local community participation in decision making. The framework is relevant to other complex heritage sites such as historic towns and cultural landscapes.     

濒危世界遗产威胁因素分析与中国世界遗产保护对策

研究导致世界遗产"濒危"的威胁因素能够为我国世界遗产管理与保护提供重要借鉴。对全球濒危世界遗产威胁因素定量统计发现:武装冲突、管理不力、工程建设是世界文化遗产与世界自然遗产共同面临的三大威胁;世界文化遗产的主要濒危因素还包括城市发展压力、不合适的维修/重建等;世界自然遗产濒危因素则还包括非法偷猎、捕捞,以及林业采伐、农业种植、放牧等农林生产活动等。中国世界遗产面临的首要威胁因素是旅游发展压力,管理问题、城市发展压力、水利工程建设等也较为突出。提出中国世界遗产保护建议:明确遗产旅游价值取向,加强高峰期游客管理,控制旅游设施建设规模;提升管理水平与管理能力,探索世界遗产管理的新体系、新思路;妥善处理好城市发展对世界文化遗产的保护压力,积极预防极端自然灾害的破坏;严格控制世界自然遗产地内的道路建设、水利工程建设等。     

World Heritage listing and changes of political values: a case study in West Lake Cultural Landscape in Hongzhou,China

World Heritage themes and frameworks, as well as the criteria for assessing the ‘outstanding universal values’ (OUV) of World Heritage sites, have been extensively criticised for being Eurocentric. Asia is a region of extraordinary levels of cultural, religious and ethnic diversity, which often comes into conflict with UNESCO understandings of heritage. Due to the influence of UNESCO, and the persuasiveness of the heritage discourses it authorises, Asian nations tend to utilise assessments and management ideologies that derive from a European viewpoint. This paper explores the changes in the political role of heritage during the process of World Heritage listing of a Chinese cultural heritage site, West Lake Cultural Landscape of Hangzhou. The study is based on three and a half months of fieldwork in Beijing, Shanghai and Hangzhou. Firstly, I examine how the government officials and experts formulated the nomination dossier, and explore their purposes in seeking World Heritage listing and their understanding of heritage. In addition, tensions between governments’ understanding of the values of the site and those of UNESCO and ICOMOS will be mapped. Secondly, I examine how the Chinese government used the World Heritage ‘brand’ and policies to construct national and local narratives during and after the World Heritage listing. In this paper, I argue that both national and local governments are quite cynical about the listing process, in that they not only recognise they are playing a game, but that the game is ‘played’ under Eurocentric rules and terms. They know some Chinese values do not fit into UNESCO’s conception of ‘outstanding universal value’ (OUV), and they have ‘edited out’ those Chinese values, which could not be explained to Western experts, and utilised the discourses of international policy and expertise. Ultimately, these values and ‘rules’ frame the management of the sites to some extent, as the Chinese government must not, in order to maintain the WH listing, deviate too much from the rules of the game.     

Islamist violence and regime stability in Saudi Arabia

Saudi Arabia, homeland of Osama bin Laden and 15 of the 19 hijackers of September 11, 2001, experienced low levels of internal violence until 2003, when a terrorist campaign by ‘Al‐Qaeda on the Arabian Peninsula’ (QAP) shook the world's leading oil producer. Based on primary sources and extensive fieldwork in the Kingdom, this article traces the history of the Saudi jihadist movement and explains the outbreak and failure of the QAP campaign. It argues that jihadism in Saudi Arabia differs from jihadism in the Arab republics in being driven primarily by extreme pan‐Islamism and not socio‐revolutionary ideology, and that this helps to explain its peculiar trajectory. The article identifies two subcurrents of Saudi jihadism, ‘classical’ and ‘global’, and demonstrates that Al‐Qaeda's global jihadism enjoyed very little support until 1999, when a number of factors coincided to boost dramatically Al‐Qaeda recruitment. The article argues that the violence in 2003 was not the result of structural political or economic strains inside the Kingdom, but rather organizational developments within Al‐Qaeda, notably the strategic decision taken by bin Laden in early 2002 to open a new front in Saudi Arabia. The QAP campaign was made possible by the presence in 2002 of a critical mass of returnees from Afghanistan, a clever two‐track strategy by Al‐Qaeda, and systemic weaknesses in the Saudi security apparatus. The campaign failed because the militants, radicalized in Afghan camps, represented an alien element on the local Islamist scene and lacked popular support. The near‐absence of violence in the Kingdom before 2003 was due to Al‐Qaeda's weak infrastructure in the early 1990s and bin Laden's 1998 decision to suspend operations to preserve local networks. The Saudi regime is currently more stable and self‐confident—and therefore less inclined to democratic reform—than it has been in many years.