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Nan Madol: Ceremonial Centre of Eastern Micronesia

Micronesia (Federated States of)
Factors affecting the property in 2023*
  • Erosion and siltation/ deposition
  • Impacts of tourism / visitor / recreation
  • Legal framework
  • Management systems/ management plan
Factors* affecting the property identified in previous reports
  • Legal framework (Legislation LB392 not yet passed and implemented)
  • Management systems/Management Plan (Management system not extended enough; Lack of a risk preparedness strategy as well as of a comprehensive tourism strategy into the management plan)
  • Erosion and siltation/ deposition (Need to remove silt from the waterways without jeopardizing possible cultural layers on the sea floor)
Threats for which the property was inscribed on the List of World Heritage in Danger
  • Management system/Management Plan
  • Management activities (Overgrowth of vegetation, Stonework collapse)
  • Storms (Effects of storm surge)
  • Erosion and siltation/ deposition
Desired state of conservation for the removal of the property from the List of World Heritage in Danger

In progress

Corrective Measures for the property

In progress

Timeframe for the implementation of the corrective measures

In progress

UNESCO Extra-Budgetary Funds until 2023

Total amount provided: USD 120,000 for the preparation of a nomination file and the management plan for Nan Madol from the UNESCO/Japan Funds-in-Trust; USD 26,232 for technical support to Nan Madol, Micronesia (List of World Heritage in Danger) from the Netherlands Funds-in-Trust.

International Assistance: requests for the property until 2023
Requests approved: 1 (from 2017-2017)
Total amount approved : 30,000 USD
Missions to the property until 2023**

January 2018: World Heritage Centre/ICOMOS Reactive Monitoring mission

Conservation issues presented to the World Heritage Committee in 2023

On 27 January 2022, the State Party submitted a report on the state of conservation of the property, which is available at https://whc.unesco.org/en/list/1503/documents/. Further information was received on 4 May 2023, and the following bullet points report on all the information received and provide information on the actions undertaken to implement the Committee’s previous decisions, as follows:

  • Travel to Pohnpei was not possible from January 2020 due to border closures in response to the COVID-19 pandemic. Many activities have been delayed by these restrictions, although work has progressed through virtual meetings;
  • The State Party and the NGO Cultural Site Research and Management Foundation (CSRM) prepared a Master Plan for the Sustainable Conservation of the Nan Madol World Heritage Site in 2020. Progress with the completion and implementation of this Plan in 2021-2022 has been impacted by the inability to travel to Pohnpei;
  • In relation to the state of conservation, managing the vegetation growth caused by the siltation of the canals has been an urgent priority and is a focus in the Master Plan, along with the management structure and the activation of networks. The United States Department of Agriculture has financed the involvement of an arborist to develop the vegetation management plan and conduct training. Urgent vegetation management actions and mangrove clearing along the main canals took place from late 2022 to January 2023;
  • Grants have allowed the purchase of tools needed for vegetation management, training and directional signage. Training was delayed by COVID-19 restrictions, but videos to support virtual training have been prepared, and virtual trainings occurred in the fall of 2022 and early 2023;
  • The Master Plan also contains a ‘Sustainable Tourism Plan’ and an ‘Interpretation Plan Discussion Draft’. The Tourism Office of the Pohnpei State Department of Resources and Development is working on a Tourism Plan;
  • The State Party has clarified that the previous draft Management Plan that was submitted with the nomination dossier was never finalised due to the need to develop governance for the property. An outline for a Management Plan was presented to stakeholders for comments in 2019 and 2020. The Pohnpei Governor’s Task Force will finalise the Management Plan, which will be the basis for changes to the legal protection mechanisms for the property;
  • The completion of the legal framework (legislation LB392) to establish the Nan Madol Trust and the framework for the management structure for the property has been delayed by COVID-19 travel restrictions. A workshop was planned for 2022, but it has not happened yet. Capacity building has been identified as a priority. Organisations with a continuing involvement include the US National Park Service, US Office of insular Affairs, US Department of Agriculture, International National Trust Organisation (INTO) and the Bahamas National Trust;
  • An organisational chart has been developed with qualifications and duties for each position in the future management system, including the post of ‘Property Manager’. The current plan is to fund the post from the visitor revenue;
  • Noting the significant practical obstacles to documentation, the State Party advises that more precise visual models of the stonework and other attributes can be produced based on LiDAR survey conducted by the CSRM Foundation, and an example has been provided. Furthermore, satellite imagery will assist with monitoring of mangroves;
  • Efforts to establish Heritage Impact Assessment (HIA) processes require further discussions between national and State agencies to clearly assign responsibilities;
  • Following ICOMOS’ Technical Review, work has progressed on the designs and specifications for a Visitor Centre funded by the Government of Japan, including interpretation exhibits and panels;
  • Construction of a tourism resort on Nahnningi Island, within the buffer zone of the property, has continued. ICOMOS had raised concerns about this project in its Technical Review of December 2019, and further clarification on legal process from the State Party is still pending. The HIA process has commenced, but has been delayed by COVID-19 restrictions;
  • The Desired state of conservation for removal of the property from the List of World Heritage in Danger (DSOCR) has not yet been drafted.
Analysis and Conclusion by World Heritage Centre and the Advisory Bodies in 2023

The State Party has provided updated information on a range of matters. Some progress has been made in relation to the actions requested in Decision 44 COM 7A.30, although many have been delayed due to border and travel restrictions related to the COVID-19 pandemic. As before, the collaboration with the CSRM in these processes is noted, along with the financial and technical support from the US Forest Service, the US Department of State, and the Ambassadors Fund for Cultural Preservation, amongst others.

The priorities for vegetation management, clearing of the canals to improve their hydrology, and a system for monitoring the health of the mangroves area are well-identified but need urgent implementation and resourcing. Progress to implement the strategies for the most urgent threats associated with vegetation growth on islets and other structures were delayed but took place in 2022 and 2023, following a virtual training programme. While the delays have been unavoidable, the rate of deterioration of Nan Madol continues to be of concern.

It is also noted with concern that the key components of the legal protection and management system are not yet in place, despite the State Party’s efforts. The position of ‘Property Manager’, which will represent an essential first step, is not yet filled. The management system and draft legislation for the protection of the property are still pending, and it is recommended that the State Party be encouraged to finalise these processes, along with the key management documents, as matters of high priority. The tourism and interpretation plans submitted by the State Party are noted.

It is also noted that construction works for a tourism resort on Nahnningi Island have continued, although the State Party’s report indicated that they were to be halted before an HIA was carried out. It is essential that the HIA is completed and reviewed prior to any further decision about this development, given that the ICOMOS Technical Review raised significant concerns about the impact of the development on archaeological material and found that there would be an impact on the integrity of the property due to its visibility, form and siting. This development issue demonstrates the urgent need for adequate legal protection for the property and its buffer zone, and the need for HIA to be incorporated as a component of the property’s management system, all of which are points that have been raised in previous decisions of the Committee.

Finally, it is noted that the DSOCR for Nan Madol has yet to be drafted. In view of the above, it would be therefore appropriate for the property to remain on the List of World Heritage in Danger.

Decisions adopted by the Committee in 2023
45 COM 7A.53
Nan Madol: Ceremonial Centre of Eastern Micronesia (Micronesia (Federated States of)) (C 1503)

The World Heritage Committee,

  1. Having examined Document WHC/23/45.COM/7A,
  2. Recalling Decision 44 COM 7A.30 adopted at its extended 44th session (Fuzhou/online, 2021),
  3. Notes that progress to establish an effective management and protection system for the property and address the urgent pressures and threats affecting its state of conservation has been delayed by border and travel restrictions caused by the COVID-19 pandemic, and welcomes the State Party’s assurances that these can soon be addressed;
  4. Also welcomes the information that funds will be provided by the US Department of State through its Ambassadors Fund for Cultural Preservation Large Grants Program to support a two-year implementation programme;
  5. Notes with concern however that, despite the efforts of the State Party and its partners, the processes affecting the state of conservation of the property have yet to be effectively addressed;
  6. Reiterates its request to the State Party to continue its work on previously identified matters of high priority, including:
    1. Continuing the implementation of the urgent vegetation management actions and clearing mangroves from the main canals, following the virtual training programmes,
    2. Appointing and establishing a long-term commitment to the post of ‘Property Manager’,
    3. Finalising and approving legislation LB392 to provide legal protection to the property and establish the Nan Madol Trust,
    4. Finalising the Master Plan for the Sustainable Conservation of the Nan Madol World Heritage Site, the site Management Plan and the Sustainable Tourism Plan,
    5. Establishing processes for Heritage Impact Assessment (HIA) as part of the management system,
    6. Submitting a draft Desired state of conservation for the removal of the property from the List of World Heritage in Danger (DSOCR), a set of corrective measures and a timeframe for their completion, in consultation with the World Heritage Centre and the Advisory Bodies;
  7. Notes with satisfaction that work has commenced on the Nan Madol Visitor Centre with support from the Government of Japan, and in line with the findings of the ICOMOS Technical Review;
  8. Expresses concern that the development of a proposed tourism resort on Nahnningi Island, within the buffer zone of the property has continued before an HIA was prepared, and that the issues raised in the 2019 ICOMOS Technical Review have yet to be addressed, and further reiterates its request that the State Party ensure that construction is halted and that an HIA is realised, in conformity with the new Guidance for Impact Assessment in a World Heritage context, developed in collaboration between the Advisory Bodies and the World Heritage Centre, and provided to the World Heritage Centre for review by the Advisory Bodies before work resumes;
  9. Also requests the State Party to submit to the World Heritage Centre, in accordance with Paragraphs 172 and 118bis of the Operational Guidelines, detailed information on any proposed and ongoing projects, including HIAs carried out according to the aforementioned Guidance, for review by the Advisory Bodies prior to the approval and/or implementation of any project;
  10. Further requests the State Party to submit to the World Heritage Centre, by 1 February 2024, an updated report on the state of conservation of the property and the implementation of the above, for examination by the World Heritage Committee at its 46th session;
  11. Decides to retain Nan Madol: Ceremonial Centre of Eastern Micronesia (Micronesia (Federated States of)) on the List of World Heritage in Danger.
45 COM 8C.2
Update of the List of World Heritage in Danger (Retained Properties)

The World Heritage Committee,

  1. Having examined the state of conservation reports of properties inscribed on the List of World Heritage in Danger (WHC/23/45.COM/7A, WHC/23/45.COM/7A.Add, WHC/23/45.COM/7A.Add.2, WHC/23/45.COM/7A.Add.3, WHC/23/45.COM/7A.Add.4),
  2. Having examined the recommendations of the Advisory Bodies, decides to retain the following properties on the List of World Heritage in Danger:
  • Afghanistan, Cultural Landscape and Archaeological Remains of the Bamiyan Valley (Decision 45 COM 7A.51)
  • Afghanistan, Minaret and Archaeological Remains of Jam (Decision 45 COM 7A.52)
  • Austria, Historic Centre of Vienna (Decision 45 COM 7A.55)
  • Bolivia (Plurinational State of), City of Potosí (Decision 45 COM 7A.18)
  • Central African Republic, Manovo-Gounda St Floris National Park (Decision 45 COM 7A.3)
  • Côte d'Ivoire / Guinea, Mount Nimba Strict Nature Reserve (Decision 45 COM 7A.4)
  • Democratic Republic of the Congo, Garamba National Park (Decision 45 COM 7A.5)
  • Democratic Republic of the Congo, Kahuzi-Biega National Park (Decision 45 COM 7A.6)
  • Democratic Republic of the Congo, Okapi Wildlife Reserve (Decision 45 COM 7A.7)
  • Democratic Republic of the Congo, Virunga National Park (Decision 45 COM 7A.8)
  • Egypt, Abu Mena (Decision 45 COM 7A.26)
  • Honduras, Río Plátano Biosphere Reserve (Decision 45 COM 7A.1)
  • Indonesia, Tropical Rainforest Heritage of Sumatra (Decision 45 COM 7A.15)
  • Iraq, Ashur (Qal'at Sherqat) (Decision 45 COM 7A.27)
  • Iraq, Hatra (Decision 45 COM 7A.28)
  • Iraq, Samarra Archaeological City (Decision 45 COM 7A.29)
  • Old City of Jerusalem and its Walls (site proposed by Jordan) (Decision 45 COM 7A.31)
  • Kenya, Lake Turkana National Parks (Decision 45 COM 7A.10)
  • Libya, Archaeological Site of Cyrene (Decision 45 COM 7A.33)
  • Libya, Archaeological Site of Leptis Magna (Decision 45 COM 7A.34)
  • Libya, Archaeological Site of Sabratha (Decision 45 COM 7A.35)
  • Libya, Old Town of Ghadamès (Decision 45 COM 7A.36)
  • Libya, Rock-Art Sites of Tadrart Acacus (Decision 45 COM 7A.37)
  • Madagascar, Rainforests of the Atsinanana (Decision 45 COM 7A.11)
  • Mali, Old Towns of Djenné (Decision 45 COM 7A.22)
  • Mali, Timbuktu (Decision 45 COM 7A.23)
  • Mali, Tomb of Askia (Decision 45 COM 7A.24)
  • Mexico, Islands and Protected Areas of the Gulf of California (Decision 45 COM 7A.2)
  • Micronesia (Federated States of), Nan Madol: Ceremonial Centre of Eastern Micronesia (Decision 45 COM 7A.53)
  • Niger, Aïr and Ténéré Natural Reserves (Decision 45 COM 7A.12)
  • Palestine, Palestine: Land of Olives and Vines – Cultural Landscape of Southern Jerusalem, Battir (Decision 45 COM 7A.39)
  • Palestine, Hebron/Al-Khalil Old Town (Decision 45 COM 7A.38)
  • Panama, Fortifications on the Caribbean Side of Panama: Portobelo-San Lorenzo (Decision 45 COM 7A.19)
  • Peru, Chan Chan Archaelogical Zone (Decision 45 COM 7A.20)
  • Romania, Roșia Montană Mining Landscape (Decision 45 COM 7A.56)
  • Senegal, Niokolo-Koba National Park (Decision 45 COM 7A.13)
  • Serbia, Medieval Monuments in Kosovo (Decision 45 COM 7A.57)
  • Solomon Islands, East Rennell (Decision 45 COM 7A.16)
  • Syrian Arab Republic, Ancient City of Aleppo (Decision 45 COM 7A.40)
  • Syrian Arab Republic, Ancient City of Bosra (Decision 45 COM 7A.41)
  • Syrian Arab Republic, Ancient City of Damascus (Decision 45 COM 7A.42)
  • Syrian Arab Republic, Ancient Villages of Northern Syria (Decision 45 COM 7A.43)
  • Syrian Arab Republic, Crac des Chevaliers and Qal’at Salah El-Din (Decision 45COM 7A.44)
  • Syrian Arab Republic, Site of Palmyra (Decision 45 COM 7A.45)
  • United Republic of Tanzania, Selous Game Reserve (Decision 45 COM 7A.14)
  • United States of America, Everglades National Park (Decision 45 COM 7A.17)
  • Uzbekistan, Historic Centre of Shakhrisyabz (Decision 45 COM 7A.54)
  • Venezuela (Bolivarian Republic of), Coro and its Port (Decision 45 COM 7A.21)
  • Yemen, Historic Town of Zabid (Decision 45 COM 7A.47)
  • Yemen, Old City of Sana’a (Decision 45 COM 7A.49)
  • Yemen, Old Walled City of Shibam (Decision 45 COM 7A.50)
3.    Recalls that the following properties were inscribed on the List of World Heritage in Danger at its 18th extraordinary session (UNESCO, 2023):
  • Lebanon, Rachid Karami International Fair-Tripoli (Decision 18 EXT.COM 5.1)
  • Ukraine, The Historic Centre of Odesa (Decision 18 EXT.COM 5.2)
  • Yemen, Landmarks of the Ancient Kingdom of Saba, Marib (Decision 18 EXT.COM 5.3)
Draft Decision: 45 COM 7A.53

The World Heritage Committee,

  1. Having examined Document WHC/23/45.COM/7A,
  2. Recalling Decision 44 COM 7A.30, adopted at its extended 44th session (Fuzhou/online, 2021),
  3. Notes that progress to establish an effective management and protection system for the property and address the urgent pressures and threats affecting its state of conservation has been delayed by border and travel restrictions caused by the COVID-19 pandemic, and welcomes the State Party’s assurances that these can soon be addressed;
  4. Also welcomes the information that funds will be provided by the US Department of State through its Ambassadors Fund for Cultural Preservation Large Grants Program to support a two-year implementation programme;
  5. Notes with concern however that, despite the efforts of the State Party and its partners, the processes affecting the state of conservation of the property have yet to be effectively addressed;
  6. Reiterates its request to the State Party to continue its work on previously identified matters of high priority, including:
    1. Continuing the implementation of the urgent vegetation management actions and clearing mangroves from the main canals, following the virtual training programmes,
    2. Appointing and establishing a long-term commitment to the post of ‘Property Manager’,
    3. Finalising and approving legislation LB392 to provide legal protection to the property and establish the Nan Madol Trust,
    4. Finalising the Master Plan for the Sustainable Conservation of the Nan Madol World Heritage Site, the site Management Plan and the Sustainable Tourism Plan,
    5. Establishing processes for Heritage Impact Assessment (HIA) as part of the management system,
    6. Submitting a draft Desired state of conservation for the removal of the property from the List of World Heritage in Danger (DSOCR), a set of corrective measures and a timeframe for their completion, in consultation with the World Heritage Centre and the Advisory Bodies;
  7. Notes with satisfaction that work has commenced on the Nan Madol Visitor Centre with support from the Government of Japan, and in line with the findings of the ICOMOS Technical Review;
  8. Expresses concern that the development of a proposed tourism resort on Nahnningi Island, within the buffer zone of the property has continued before an HIA was prepared, and that the issues raised in the 2019 ICOMOS Technical Review have yet to be addressed, and further reiterates its request that the State Party ensure that construction is halted and that an HIA is realised, in conformity with the new Guidance for Impact Assessment in a World Heritage context, developed in collaboration between the Advisory Bodies and the World Heritage Centre, and provided to the World Heritage Centre for review by the Advisory Bodies before work resumes;
  9. Also requests the State Party to submit to the World Heritage Centre, in accordance with Paragraphs 172 and 118bis of the Operational Guidelines, detailed information on any proposed and ongoing projects, including HIAs carried out according to the aforementioned Guidance, for review by the Advisory Bodies prior to the approval and/or implementation of any project;
  10. Further requests the State Party to submit to the World Heritage Centre, by 1 February 2024, an updated report on the state of conservation of the property and the implementation of the above, for examination by the World Heritage Committee at its 46th session;
  11. Decides to retain Nan Madol: Ceremonial Centre of Eastern Micronesia (Micronesia (Federated States of)) on the List of World Heritage in Danger.
Report year: 2023
Micronesia (Federated States of)
Date of Inscription: 2016
Category: Cultural
Criteria: (i)(iii)(iv)(vi)
Danger List (dates): 2016-present
Documents examined by the Committee
SOC Report by the State Party
Report (2022) .pdf
Initialy proposed for examination in 2022
arrow_circle_right 45COM (2023)
Exports

* : The threats indicated are listed in alphabetical order; their order does not constitute a classification according to the importance of their impact on the property.
Furthermore, they are presented irrespective of the type of threat faced by the property, i.e. with specific and proven imminent danger (“ascertained danger”) or with threats which could have deleterious effects on the property’s Outstanding Universal Value (“potential danger”).

** : All mission reports are not always available electronically.