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 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.     

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.     

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。     

Emerging Applications of LiDAR / Airborne Laser Scanning in the Management of World Heritage Sites

Remotely sensed data and imagery have revolutionized the way we understand archaeological sites and landscapes. LiDAR / airborne laser scanning (ALS) has been used to capture the often subtle topographic remnants of previously undiscovered sites even in intensely studied landscapes, and is rapidly becoming a key technology in survey projects with large extents and/or difficult terrain. This paper examines the practical application of this technology to archaeological heritage management, with special attention given to how ALS can support the World Heritage List nomination process and management of WHS archaeological sites and landscapes. It presents a number of examples from published ALS studies alongside case studies from projects undertaken by the authors at Cultural Site Research and Management and the Cultural Site Research and Management Foundation, Baltimore, Maryland, USA. The paper opens with a review of how ALS has been used at established World Heritage Sites, focusing on the Archaeological Ensemble of the Bend in the Boyne, Ireland, and the Angkor Archaeological Site in Cambodia. ALS applications for site prospection and demarcation, and viewshed analysis is explored in this section. Following this, we explore how ALS has been used to support two recent applications: the successfully nominated Monumental Earthworks at Poverty Point, USA and the recently nominated Orheiul Vechi Archaeological Landscape in Moldova. We propose that the detail offered by ALS data greatly strengthens nomination dossiers by emphasizing the outstanding universal value of sites, highlighting significant features and providing greater context to wider landscapes, and is particularly efficacious in delineating site boundaries for legal protection and long-term management. Finally, we conclude with a look at some of the practical considerations involved in the use of ALS, including access and training.     

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.     

Protecting World Heritage: Regulating Ownership and Land Use at Angkor Archaeological Park,Cambodia

This paper contemplates whether, and in what ways, proprietary interests in land and land usage are affected by a World Heritage listing, using Angkor Archaeological Park, Cambodia, as the case study. The effect is measured through the identification and synthesis of the national legislative and local regulatory response to the implementation of the World Heritage listing. Such an analysis illustrates that the listing imposes significant restraints on land use and ownership which impact directly on the local resident communities of Angkor. A breakdown of the regulatory response also highlights the limitations inherent in the existing regulatory framework. There is a consideration of the concept of ‘ownership’ in a World Heritage site of ‘outstanding universal value’. In raising these issues, this paper highlights the challenges facing heritage managers in attempting to marry local needs with the demands of international heritage protection in the setting of a post‐conflict Southeast Asian nation.     

World Heritage Cultural Landscapes

The concept of cultural landscapes has a long and varied lineage, including antecedents in geography and ecomuseums, and can be applied at all scales. In the 1990s, the World Heritage Committee adopted cultural landscapes as an additional category of property as part of its strategy to broaden the scope of World Heritage listings. By July 2006, there were 53 properties inscribed on the World Heritage List and officially recognised as being cultural landscapes. Such recognition is an acknowledgement of the importance of human–environment interactions, especially those of a more traditional type. Not surprisingly, cultural landscapes have their own particular management issues, as well as sharing others with World Heritage properties in general. These properties, however, also present many opportunities to increase people’s understanding of both cultural and environmental values important to the future of humankind on a global level.     

Destruction,mitigation, and reconciliation of cultural heritage

Attacks on built cultural heritage often occur during times of armed conflict. Many such acts are not collateral damage, but rather are deliberate and ideologically driven assaults intended to eradicate the adversary’s identity and collective memory. They represent ‘urbicide’ and ‘identicide’. The victims typically attempt to mitigate the loss, frequently by reconstructing the lost historic place and thereby restoring tangible evidence of their identity. Reconstruction, however, is itself an ideological act and a destructive activity, since it erases memories of the violence and removes physical evidence. The United Nations Educational, Scientific and Cultural Organisation has commemorated several cultural heritage sites that have been destroyed and subsequently reconstructed, by inscribing them on the World Heritage List. Although this ensures the perpetuation of their memory, it may distort the original purpose of the list as a celebration of ‘outstanding universal value’. Beyond commemoration, a desired outcome is reconciliation. True reconciliation requires the release of anger and pain, so that memories of the violence may be retained without a desire for retribution. This article looks at a selection of acts intended at destroying cultural heritage, including some that did not occur during war, and examines means and motives for achieving mitigation and reconciliation.     

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 Mezquita of C��rdoba is Made of More than Bricks: Towards a Broader Definition of the ��Heritage�� Protected at UNESCO World Heritage Sites

On March 31, 2010, a group of Muslim tourists visited the Mosque-Cathedral of Córdoba, Spain, and attempted to pray. They were confronted by guards who called the police; two of the tourists were arrested and jailed, charged with crimes against religious sentiment. The incident is but one of many acts of religious intolerance which represent a threat to this UNESCO World Heritage Site. Though the World Heritage Convention seems to be concerned only with the protection of the physical heritage represented by archaeological sites, I argue that in order to adequately preserve and promote the sites on the World Heritage List, the intangible heritage values of those locations must also be protected.     

台州府城墙突出普遍价值及军事遗产类型研究

在历史研究的基础上,认为台州府城墙符合世界遗产标准的第Ⅱ、Ⅳ条,并对突出普遍价值进行综述。按照地域、功能、文化等标准,将《世界遗产名录》中的军事遗产分为边墙、城墙、城堡、要塞和军事基地五种类型,并与台州府城墙进行比较研究。最终,对台州府城墙申报世界遗产的优势和劣势进行分析并提出策略。