World Heritage and Sustainable Tourism Programme

The World Heritage Committee,

1.  Having examined document WHC-12/36.COM/5E,

2. Recalling Decision 34 COM 5F.2 adopted at its 34th session (Brasilia, 2010),

3. Welcomes the finalization of the new and inclusive Programme on World Heritage and Sustainable Tourism and notes with appreciation the participatory process for its development, objectives and approach towards implementation;

4. Also welcomes the contribution of the Steering Group comprised of States Parties representatives from the UNESCO Electoral Groups, the World Heritage Centre, the Advisory Bodies (IUCN, ICOMOS, ICCROM), Switzerland and the United Nations World Tourism Organisation (UNWTO) in the elaboration of the Programme;

5.  Thanks the Government of Switzerland, the United Nations Foundation and the Nordic World Heritage Foundation for their technical and financial support to the elaboration of the Programme;

6.  Notes with appreciation the contribution provided by the States Parties and other consulted stakeholders during the consultation phase of the Programme;

7.  Takes note of the results of the Expert Meeting in Sils/Engadin (Switzerland), from 18 to 22 October 2011 contributing to the Programme, and further thanks the Government of Switzerland for hosting the Expert Meeting;

8.  Adopts the World Heritage and Sustainable Tourism Programme;

9.  Requests the World Heritage Centre to refine the Draft Action Plan 2013-2015 in an Annex to the present document and to implement the Programme with a Steering  Group comprised of representatives of the UNESCO Electoral Groups, donor agencies, the Advisory Bodies, UNWTO and in collaboration with interested stakeholders;

10.  Notes that financial resources for the coordination and implementation of the Programme do not exist and also requests States Parties to support the implementation of the World Heritage and Sustainable Tourism Programme;

11. Further requests the World Heritage Centre to report biennially on the progress of the implementation of the Programme;

Notes with appreciation the launch of the Programme foreseen at the 40th Anniversary of the World Heritage Convention event in Kyoto, Japan, in November 2012

The World Heritage Committee,

1. Having examined Document WHC-10/34.COM/INF.5F.1 and WHC-10/34.COM/INF.5F.3,

2. Highlighting that the global tourism sector is large and rapidly growing, is diverse and dynamic in its business models and structures, and the relationship between World Heritage and tourism is two way: tourism, if managed well, offers benefits to World Heritage properties and can contribute to cross-cultural exchange but, if not managed well, poses challenges to these properties and recognizing the increasing challenges and opportunities relating to tourism;

3. Expresses its appreciation to the States Parties of Australia, China, France, India, Sweden, Switzerland and the United Kingdom, and to the United Nations Foundation and the Nordic World Heritage Foundation for the financial and technical support to the World Heritage Tourism Programme since its establishment in 2001;

4. Welcomes the report of the international workshop on Advancing Sustainable Tourism at Natural and Cultural Heritage Sites (Mogao, China, September 2009) and adopts the policy orientation which defines the relationship between World Heritage and sustainable tourism (Attachment A);

5. Takes note of the evaluation of the World Heritage Tourism Programme by the UN Foundation, and encourages the World Heritage Centre to take fully into account the eight programme elements recommended in the draft final report in any future work on tourism (Attachment B);

6. Decides to conclude the World Heritage Tourism Programme and requests the World Heritage Centre to convene a new and inclusive programme on World Heritage and Sustainable Tourism, with a steering group comprising interested States Parties and other relevant stakeholders, and also requests the World Heritage Centre to outline the objectives and approach to implementation of this programme, drawing on the directions established in the reports identified in Paragraphs 4 and 5 above, for consideration at the 35th session of the World Heritage Committee (2011);

7. Also welcomes the offer of the Government of Switzerland to provide financial and technical support to specific activities supporting the steering group; further welcomes the offer of the Governments of Sweden, Norway and Denmark to organize a Nordic-Baltic regional workshop in Visby, Gotland, Sweden in October 2010 on World Heritage and sustainable tourism; and also encourages States Parties to support the new programme on World Heritage and Sustainable Tourism including through regional events and the publication of materials identifying good practices;

8. Based upon the experience gained under the World Heritage Convention of issues related to tourism, invites the Director General of UNESCO to consider the feasibility of a Recommendation on the relationship between heritage conservation and sustainable tourism. 

Attachment A

Recommendations of the international workshop

on Advancing Sustainable Tourism at Natural and Cultural Heritage Sites 

Policy orientations: defining the relationship between World Heritage and tourism

1. The tourism sector

The global tourism sector is large and rapidly growing, is diverse and dynamic in its business models and structures.

Tourists/visitors are diverse in terms of cultural background, interests, behaviour, economy, impact, awareness and expectations of World Heritage.

There is no one single way for the World Heritage Convention, or World Heritage properties, to engage with the tourism sector or with tourists/visitors.

2. The relationship between World Heritage and tourism

The relationship between World Heritage and tourism is two-way:

a. World Heritage offers tourists/visitors and the tourism sector destinations

b. Tourism offers World Heritage the ability to meet the requirement in the Convention to 'present' World Heritage properties, and also a means to realise community and economic benefits through sustainable use.

Tourism is critical for World Heritage:

a. For States Parties and their individual properties,

i. to meet the requirement in the Convention to 'present' World Heritage

ii. to realise community and economic benefits

b. For the World Heritage Convention as a whole, as the means by which World Heritage properties are experienced by visitors travelling nationally and internationally

c. As a major means by which the performance of World Heritage properties, and therefore the standing of the Convention, is judged,

i. many World Heritage properties do not identify themselves as such, or do not adequately present their Outstanding Universal Value

ii. it would be beneficial to develop indicators of the quality of presentation, and the representation of the World Heritage brand

d. As a credibility issue in relation to: i. the potential for tourism infrastructure to damage Outstanding Universal Value

i. the threat that World Heritage properties may be unsustainably managed in relation to their adjoining communities

ii. sustaining the conservation objectives of the Convention whilst engaging with economic development

iii. realistic aspirations that World Heritage can attract tourism.

World Heritage is a major resource for the tourism sector:

a. Almost all individual World Heritage properties are significant tourism destinations

b. The World Heritage brand can attract tourists/visitors,

i. the World Heritage brand has more impact upon tourism to lesser known properties than to iconic properties.

Tourism, if managed well, offers benefits to World Heritage properties:

a. to meet the requirement in Article 4 of the Convention to present World Heritage to current and future generations

b. to realise economic benefits.

Tourism, if not managed well, poses threats to World Heritage properties.

3. The responses of World Heritage to tourism

The impact of tourism, and the management response, is different for each World Heritage property: World Heritage properties have many options to manage the impacts of tourism.

The management responses of World Heritage properties need to:

a. work closely with the tourism sector

b. be informed by the experiences of tourists/visitors to the visitation of the property

c. include local communities in the planning and management of all aspects of properties, including tourism.

While there are many excellent examples of World Heritage properties successfully managing their relationship to tourism, it is also clear that many properties could improve:

a. the prevention and management of tourism threats and impacts

b. their relationship to the tourism sector inside and outside the property

c. their interaction with local communities inside and outside the property

d. their presentation of Outstanding Universal Value and focus upon the experience of tourists/visitors.

The management responses of World Heritage properties need to:

a. be based on the protection and conservation of the Outstanding Universal Value of the property, and its effective and authentic presentation

b. work closely with the tourism sector

c. be informed by the experiences of tourists/visitors to the visitation of the property

d. their presentation of Outstanding Universal Value and focus upon the experience of tourists/visitors.

The management responses of World Heritage properties need to:

a. be based on the protection and conservation of the Outstanding Universal Value of the property, and its effective and authentic presentation

b. work closely with the tourism sector

c. be informed by the experiences of tourists/visitors to the visitation of the property

d. to include local communities in the planning and management of all aspects of properties, including tourism.

4. Responsibilities of different actors in relation to World Heritage and tourism

The World Heritage Convention (World Heritage Committee, World Heritage Centre, Advisory Bodies):

a. set frameworks and policy approaches

b. confirm that properties have adequate mechanisms to address tourism before they are inscribed on the World Heritage List

i. develop guidance on the expectations to be include in management plans

c. monitor the impact upon OUV of tourism activities at inscribed sites, including through indicators for state of conservation reporting

d. cooperate with other international organisations to enable:

i. other international organisations to integrate World Heritage considerations in their programs

ii. all parties involved in World Heritage to learn from the activities of other international organisations

e. assist State Parties and sites to access support and advice on good practices

f. reward best practice examples of World Heritage properties and businesses within the tourist/visitor sector

g. develop guidance on the use of the World Heritage emblem as part of site branding.

Individual States Parties:

a. develop national policies for protection

b. develop national policies for promotion

c. engage with their sites to provide and enable support, and to ensure that the promotion and the tourism objectives respect Outstanding Universal Value and are appropriate and sustainable

d. ensure that individual World Heritage properties within their territory do not have their OUV negatively affected by tourism.

Individual property managers:

a. manage the impact of tourism upon the OUV of properties

i. common tools at properties include fees, charges, schedules of opening and restrictions on access

b. lead onsite presentation and provide meaningful visitor experiences

c. work with the tourist/visitor sector, and be aware of the needs and experiences of tourists/visitors, to best protect the property

i. the best point of engagement between the World Heritage Convention and the tourism sector as a whole is at the direct site level, or within countries

d. engage with communities and business on conservation and development.

Tourism sector:

a. work with World Heritage property managers to help protect Outstanding Universal Value

b. recognize and engage in shared responsibility to sustain World Heritage properties as tourism resources

c. work on authentic presentation and quality experiences.

Individual tourists/visitors with the assistance of World Heritage property managers and the tourism sector, can be helped to appreciate and protect the OUV of World Heritage properties. 

Attachment B

Programme elements recommended by the Draft Final Report of the Evaluation of the World Heritage Tourism Programme by the UN Foundation:

1. Adopt and disseminate standards and principles relating to sustainable tourism at World Heritage sites;

 2. Support the incorporation of appropriate tourism management into the workings of the Convention;

 3. Collation of evidence to support sustainable tourism programme design, and to support targeting;

 4. Contribution of a World Heritage perspective to cross agency sustainable tourism policy initiatives;

 5. Strategic support for the dissemination of lessons learned;

 6. Strategic support for the development of training and guidance materials for national policy agencies and site managers;

 7. Provision of advice on the cost benefit impact of World Heritage inscription;

 8. Provision of advice on UNESCO World Heritage branding.

The World Heritage Committee,

1. Having examined Documents WHC-09/33.COM/5A, WHC- 09/33.COM/INF.5A.1, WHC-09/33.COM/INF.5A.2, and WHC-09/33.COM/INF.5A.3,

2. Recalling Decision 32 COM 5 adopted at its 32nd session (Quebec City, 2008),

3. Takes note with appreciation of the activities undertaken by the World Heritage Centre over the past year in pursuit of the Committee's five Strategic Objectives;

4. Takes also note of the findings of the study undertaken by UNESCO's Internal Oversight Service on the mapping of the workload of the World Heritage Centre presented in Document WHC-09/33.COM/INF.5A.3;

5. Notes with satisfaction that the World Heritage Centre is working with the secretariats of intergovernmental committees of related conventions such as the Convention for the Safeguarding of Intangible Cultural Heritage, and the Convention for the Protection of the Underwater Cultural Heritage-2001 and recommends that such cooperation be encouraged as this would further strengthen the work of the Centre;

6. Requests the World Heritage Centre to prepare a document on the World Heritage Convention and its cooperation and exchange with other conventions and programmes in the field of cultural heritage for discussion at the 34th session of the World Heritage Committee (2010);

7. Also requests the World Heritage Centre, in future reports on activities undertaken, to further strengthen the information and analysis available to States Parties by:

a) Retaining the current format to report activities and including an update on progress with implementing the Committee's decisions,

b) Describing the criteria by which the World Heritage Centre makes decisions as to which activities under the Convention it undertakes,

c) And including, on a discretionary basis, analysis of strategic issues and new directions;

8. Further requests the World Heritage Centre to produce, on an experimental basis, an indexed audio verbatim recording of the proceedings of the 33rd Session in addition to the standard summary records (as produced since the 26th session of the World Heritage Committee);

9. Notes the outline provided by the World Heritage Centre of its roles and the roles of the Advisory Bodies and agrees that this topic be further discussed at the 34th session of the Committee in 2010 under a separate agenda item;

10. Requests furthermore the World Heritage Centre to outline the forward direction of the World Heritage thematic programmes and initiatives, to enable an understanding of how these themes connect with and integrate into general programmes, and how they might be resourced;

11. Notes that the Centre already proactively engages women in its Heritage Programmes in Asia, Africa and the Caribbean as part of its gender balance policy and the provision of equal opportunity to all, and recommends that gender balance and community involvement be prioritized in the Centre's programmes;

12. Adopts the World Heritage Thematic Programme on Prehistory presented in Annex 1 of document WHC-09/33.COM/5A;

13. Requests the World Heritage Centre to reconsider the term "prehistory", to better recognize the continuing cultures of indigenous communities, to ensure global representation in the identification and conservation of related properties, and to present a report on progress in developing an Action Plan on Prehistory and World Heritage at its 34th session in 2010;

14. Notes with concern the ongoing destruction of some of these fragile sites, including the recent destruction of the Rock Art sites of Tardrat Acacus in Libya, and requests the State Party to take immediate action and other measures as necessary to address the problem in consultation with the World Heritage Centre and to invite a joint World Heritage Centre / ICOMOS mission;

15. Expresses its gratitude to the Governments of Bahrain, South Africa and Spain for the financial and technical support for the various international scientific encounters, and recognizesthe proposal of the Government of Spain in establishing a centre for the research of Prehistory;

16. Recalling the Decision of the World Heritage Committee 31 COM.21C to carry out a programme of sustainable development concerning the conservation of earthen architecture, thanks the Governments of Italy and France for their support of the programme on earthen architecture in Africa and the Arab States in particular, and requests the potential financial donors and the States Parties to support the implementation of activities and further requests the World Heritage Centre to submit a progress report at its 35th session in 2011;

17. Takes note of the progress report on the World Heritage Tourism Programme;

18. Thanks the Governments of Australia, China, France, India, Switzerland and United Kingdom, who have worked in close collaboration with the World Heritage Centre and the Advisory Bodies, the World Tourism Organization and other partners, for contributing to the Initiative of Sustainable Tourism;

19. Expresses its gratitude to the Governments of Australia and China for the organization of a workshop on sustainable tourism at the World Heritage site, Mogao Caves, China, in September-October 2009 and requests that the following elements be submitted to the Committee for examination at its 34th session in 2010:

a) A report on the workshop,

b) The subsequent recommendations of the workshop regarding the adoption of best practices policy guidance, and concerning the changes proposed for the Operational Guidelines for the implementation of the World Heritage Convention,

c) A document concerning the progress of the World Heritage Programme on Tourism;

20. Finally requests the Director of the World Heritage Centre to identify supplementary sources of funding to put into place a sufficient number of staff and resources at the World Heritage Centre and the Advisory Bodies in order to continue to efficiently contribute to the resolution of problems related to World Heritage conservation.

XVII.1 The Secretariat informed the Committee that document WHC-01/CONF.208/19 provides an analysis of international assistance under the World Heritage Fund based on the review of more than 1200 requests approved from 1978 to the end-of September 2001, and proposals of four thematic programmes aimed to address some of the major conservation problems of World Heritage sites. The Secretariat recalled that these programme proposals were developed for consideration by the Committee at the request of the Bureau at its twenty-fifth session which endorsed the strategic orientations in the use of the World Heritage Fund's international assistance. The overall aim, the Secretariat stated, was to use limited funds in a proactive way and to support conservation activities with a multiplier effect with demonstration value.

XVII.2 The Committee was informed that a total of about US$27 million had been allocated since 1978 to support activities requested by the States Parties. Although the amount available annually for international assistance had increased significantly since 1992, the growing demand from States Parties of the developing world made it impossible to respond adequately to all the requests. In terms of distribution of the cumulative amount, support to African States Parties represents some 27% (36 States Parties and 53 properties), Arab States 13% (18 States Parties and 52 properties), Asia-Pacific 21% (35 States Parties and 135 properties), Latin America and the Caribbean 24% (29 States Parties, 98 properties), Europe and North America 15% (49 States Parties and 352 properties).

XVII.3 The proposed 2002-2003 budget for international assistance (Chapter III of the budget) is composed of three sections: (1) States Parties request in accordance with the Operational Guidelines, for preparatory assistance, training, technical cooperation and on-site promotion, and emergency assistance for the amount of US$4 million (for budget details see Chapter XV of this report), (2) World Heritage Programme Initiatives for the amount of US$450,000 to launch four thematic programmes and (3) evaluation of international assistance for US$60,000.

XVII.4 Stressing the need for multi-year programmes to ensure the sustainability of conservation policies and actions, the Secretariat referred to the mutually reinforcing relationship between Principles, Programmes, and Partners which would be the means to achieve "the credibility, conservation and capacity-building areas" advanced by the Delegate of Belgium.

XVII.5 The programmes would be guided by the principles laid out in the World Heritage Convention and other international conventions on the protection of heritage and the environment, as well as recommendations and charters of UNESCO, ICOMOS and IUCN. These principles would also serve to ensure that the partners to be solicited to support the programme activities would do so upon adhering to the conservation objectives of these international norms and standards.

XVII.6 The Committee was informed that the selection of the themes of the four programmes proposed for their consideration was based on the identification of the types of conservation problems that have resulted in the greater amount of international assistance in the past, crossreferenced with issues emerging from a review of the reactive monitoring reports and the findings from the periodic reports (Arab States, Africa and initial findings from the on-going exercise in Asia-Pacific). The rationale for the thematic programme, composed of sub-regional and site-specific activities is to address conservation issues prevalent in all regions through site-specific activities so that concrete lessons can serve to improve methodology.

XVII.7 Tourism management; conservation of forest sites; conservation management of cities and conservation of earthen structures were proposed.

XVII.8 The Secretariat provided the following justifications for the selection: 

• Tourism - growing threats on World Heritage sites from tourism which, if sustainably managed could offer socio-economic development opportunities;
• Forests - since close to 60 of the natural sites on the World Heritage List are forests and that the lessons being learned from the large-scale UNESCO-UN Foundation projects in the tropical forest sites in the Democratic Republic of the Congo can serve as case studies to enrich the programme;
• Cities - since close to 200 of the cultural sites on the List are historic centres or entire cities, and because 20% of the Fund's international assistance have served to address the challenge of urban heritage conservation;
• Earthen structures - since some 30 of the cultural sites on the List are included in this category, and due to the particularity of conservation of earthen heritage, and threats.

XVII.9 The Secretariat concluded its presentation by stating that in view of the many other categories of heritage and the wide range of conservation issues which need to be addressed in a systematic manner, it would be prepared to develop alternative programmes should the Committee wish to give priority to others. The Secretariat also drew the attention of the Committee to other programmes which can be developed for consideration by the Committee at Budapest, namely: risk preparedness; coastal and marine ecosystems; cultural landscapes; wooden heritage, and mural paintings.

XVII.10 The Committee expressed its appreciation for the clarity of the presentation and the justifications provided. Indicating strong support for the overall programming approach, the Committee however indicated the need for the programme to respond to the priorities established by the Committee and to create strong links with the results of the Global Strategy actions and Periodic Reporting. The Committee approved the four proposed themes of the programmes in this first series of initiatives and authorized the Centre to proceed in their development.

XVII.11 One Committee member requested the development of a programme for coastal marine and small island ecosystems, stressing the need to take advantage of the attention being given to this by GEF and environmental protection agencies. The Secretariat agreed to its importance and on-going activities in this area but indicated the need to avoid the dispersion of human and financial resources, especially in view of the attention needed to develop the forest programme.

XVII.12 ICCROM and ICOMOS expressed regret that they had not been adequately associated in the development of the thematic programmes and pilot case studies, although they had been consulted on the programme approach. ICCROM stressed that the programmes proposed by the Centre all have capacitybuilding focus where ICCROM has long years of experience. The Secretariat assured the Advisory Bodies that their involvement is foreseen and would be essential to the success of these initiatives.