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.     

Negotiation of Social Values in the World Heritage Listing Process: A Case Study on the Beijing-Hangzhou Grand Canal,China

This paper examines the World Heritage listing process for the Beijing-Hangzhou Grand Canal to understand the sociopolitical meanings of heritage in contemporary China. Over the past four decades, the efforts of the Chinese government have been clearly geared towards improving governance over heritage sites by designating them as state properties, which requires the selection and evaluation of cultural heritage sites on the specific political meaning based on historical, aesthetic, or scientific value. In the process of World Heritage listing of Chinese heritage sties, the model of ‘state properties’ had to be compatible with UNESCO’s understanding of ‘heritage’, as well as economic benefits of heritage. Drawing on the data collected from the process of World Heritage listing of the Beijing-Hangzhou Grand Canal, this paper explores the integration of the social meanings of heritage into the ‘authorized’ values criteria, facilitating multiple uses of ‘heritage’ through collaboration among UNESCO, Chinese heritage officials, and local communities. It argues that practices of heritage that consider social meanings will integrate local communities’ understandings into political meanings of heritage on basis of central government’s interests. This paper shows how the social meanings of heritage create a dialectical relationship to enable a ‘living’ cultural process in the preservation of ‘state properties’. In addition, the social meanings of heritage allow all potential stakeholder groups to negotiate with the heritage bureaucracy, as well as strengthening the role of local interests in heritage policy.     

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.     

Post‐conflict Heritage and Tourism in Cambodia: The Burden of Angkor

The World Heritage Site of Angkor is enduring one of the most crucial, turbulent periods in its 1200‐year history. Since the early 1990s over 20 countries have contributed millions of dollars to help safeguard and restore its temples. As one of Southeast Asia’s premier destinations, Angkor has also seen a 10,000% growth in international tourist arrivals in just over a decade. The challenges arising from the intense convergence of these two paradoxical and unstable agendas—heritage conservation and tourism development—are greatly compounded by Cambodia’s need to recover from war and turmoil. This paper explores the critical trends that have surfaced at Angkor and why the challenges posed by surging tourism have been inadequately addressed. It argues Angkor’s dominant role within Cambodia’s post‐conflict heritage and tourism industries requires closer, more critical attention given recent events in the country. This article is the summary of Winter's book Post‐conflict Heritage, Post‐colonial Tourism (Routledge 2007).     

Conservation of the sacred at Angkor Wat: further reflections on living heritage

Abstract

This article reflects on and complements the paper 'Conservation of a “living heritage site”: a contradiction in terms? A case study of Angkor World Heritage Site', published by Keiko Miura Conservation and Management of Archaeological Sites, 7(1), (2005) 3–18. It develops further the notion of conserving sacred heritage in the light of a case study of Angkor Wat within the World Heritage site. Heritage management is always a balance between preserving different values – historic, aesthetic, use, spiritual, etc. Each of these categories of value has its own set of needs which are often not fully compatible with one another. Heritage management originally stemmed from the desire to protect the aesthetic and historic values of tangible heritage. Yet an over-emphasis on preserving these values alone is not tenable in a 'living heritage site'. At Angkor Wat it causes spiritual degradation and secularization. Highlighting instances in which this phenomenon has been apparent, this article suggests a way forward.     

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.     

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.     

The social production of ‘attractive authenticity’ at the World Heritage Site of Røros,Norway

This paper examines how authenticity and its use as a way of conceptualising the past participates in processes of heritage production, which are here defined as both the social construction of heritage sites and the uses of heritage sites as resources to achieve social goals. We argue that the social production of place and the social values generated by place are linked by a common approach based on the use of ‘place attraction’ as a unifying social concept. The World Heritage Site of Røros has as an attractive place become a resource for the production of cultural capital among various stakeholders, taking the form of a large body of ‘heritage knowledges’. However, a symbolic capital production of ‘attractive authenticity’ has today generated an idealised past and a purified iconic image of Røros as World Heritage. The discourse of ‘attractive authenticity’ reveals a conflict of interests where symbolic capital unfolds and makes power relations evident. This exposes a discussion about cultural heritage management practices at World Heritage Sites.     

Mundane Myths: Heritage and the Politics of the Photographic Cliché

This paper considers the impact of photographic clichés on the management, conceptualization, and experience of heritage. Working along the grain of pejorative readings of ‘snapshot’ photography, this account views the repetitiveness and redundancy of the cliché as a critical point of departure, rather than a cause for reproach. Taking the World Heritage Site of Angkor as a core case study, three intersecting axes of political concern are sketched out to elucidate the broad social, material, and affective implications of clichéd photography for heritage. First, processes of dehistoricization and depoliticization are interrogated in relation to the role certain images play in constructing a mythic sense of the past in the present. This leads directly in to the second strand of analysis, which examines the various ways in which individuals negotiate these myths through the production of their own highly personalized photographic clichés. Here I develop the concept of an embodied politics of heritage photography to grasp the multivalent resonances of tourist clichés in particular. Finally, the implicit and explicit forms of spatial control that permeate sites such as Angkor are examined in relation to the photographic clichés they respond to and help shape.     

Narratives of World Heritage in Travel Guidebooks

World Heritage Sites are among the most popular tourist destinations in the world and are, by UNESCO definition, exceptional heritage places. New visions of World Heritage encourage ideas of intercultural exchange and dialogues in the creation of these places. Thus it might be expected that cultural World Heritage Sites would be presented in ways that signal their ‘universal’ status. The article examines the portrayal of these sites in travel guidebooks, which are an acknowledged source of important influence on travellers. A study of travel guidebooks for various European nations showed that surprisingly few places are labelled as World Heritage even in the most comprehensive books. There is a gap between the ideals and what happens on the ground. While practical problems and lack of awareness may be one explanation for this, the inherent difficulties of conceiving and presenting narratives of world heritage as opposed to national, regional or local heritage may be more significant.     

An account of cultural heritage and nature conservation in Mustang,Nepal

Abstract

This article was presented as a paper to ‘World Cultural Heritage: a global challenge’, an International Symposium at Hildesheim, Germany in February 1997. The paper outlines the problems of attempting to develop a combined heritage and tourism strategy for the small, remote, Himalayan kingdom of Mustang. The development of tourism brings both opportunities and threats to local people and their identity.     

Mobility and modernity in Luang Prabang,Laos: re-thinking heritage and tourism

Numerous studies of tourism in Luang Prabang World Heritage site in Lao Peoples’ Democratic Republic are critical of the perceived impacts on heritage values of the city. Criticisms relate to the incursion of new buildings into the historic core, the loss of older dwellings, increases in foreigners renting and restoring properties as guest houses and restaurants and the movement of locals out of the historic core. Other criticisms relate to the effects on community support for the monastic communities that create the sacred and ritual geography of the city, the loss of community diversity within the World Heritage boundaries and increasing uniformity as the development of tourism continues apace. While our research does not challenge these observations it raises questions about the type of analyses and conclusions reached. Too often ‘heritage’, ‘tourism’ and ‘community’ are considered self-evident and bounded entities, with tourism something faintly alien that causes disruption to the urban fabric of Luang Prabang and, consequently, to the values for which it was inscribed. We propose a different way of conceptualising the relationship between heritage, community and tourism by examining the interaction between global, regional and local mobilities in the context of globalisation and under the aegis of modernity.     

Community,Connection and Conservation: Intangible Cultural Values in Natural Heritage—the Case of Shirakami‐sanchi World Heritage Area

Intangible cultural heritage, according to a UNESCO definition, is ‘the practices, representations, expressions as well as the knowledge and skills that communities, groups and in some cases individuals recognise as part of their cultural heritage’. Using a case study of Shirakami‐sanchi World Heritage Area, this paper illustrates how the local community's conservation commitment was formed through their long‐term everyday interactions with nature. Such connectivity is vital to maintaining the authentic integrity of a place that does not exclude humans. An examination of the formation of the community's conservation commitment for Shirakami reveals that it is the community's spiritual connection and place‐based identity that have supported conservation, leading to the World Heritage nomination, and it is argued that the recognition of such intangible cultural heritage is vital in conservation. The challenge, then, is how to communicate such spiritual heritage today. Forms of community involvement are discussed in an attempt to answer this question.     

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.     

Expertise and the making of World Heritage policy

This paper contributes to two emergent areas of scholarship: first, the role of expertise within the domain of cultural heritage practice; and second, international heritage institutions and their processes of governance. It does so by exploring expertise within the context of World Heritage Committee meetings. These forums of international heritage policy formulation have undergone significant changes in recent years, with larger geopolitical forces increasingly shaping process and decisions. This paper foregrounds the idea of these annual meetings as ‘locales’ in order to explore the inflows of expertise that help constitute authoritative decision-making, how expert knowledge is crafted for and by bureaucratic structure, and how the interplay between technical knowledge and politics via an ‘aesthetics of expertise’ bears upon future directions. In offering such an analysis, the paper seeks to add nuance and conceptual depth to our understanding of international conservation policy and the regulatory, governmental practices of organisations such as UNESCO.     

Towards a holistic approach to heritage values: a multidisciplinary and cosmopolitan approach

ABSTRACT

In this paper, we explore the ‘Preservation/Heritage Values/Management’ triptych, and we propose a new method for addressing the values attributed to cultural heritage sites. Combining multidisciplinary and cosmopolitan approaches, we propose a way of moving beyond the traditional lens of assessing significance within the imposed categorical framework of ‘aesthetic, historic, scientific, social or spiritual values’. We provide an example of our new approach through a worked case study in the Maloti-Drakensberg Park World Heritage Site (South African section). Our case study concerns the values associated with the world famous San (Bushman) rock art of this mountain area. Through a thematic analysis of data collected in this area from 2009 to 2017, six cross-cultural interest points are identified and are discussed. Building upon the history of values-based heritage management, we argue that our multidisciplinary and cosmopolitan method is transferable and can be applied to heritage sites around the world. It can facilitate the construction of heritage management plans that are more in tune with local actors and that will therefore prove to be more effective and sustainable.