Site of Palmyra

Before the conflict:

• Temperature change (Serious weathering of many stone blocks due to capillary rising and variations in humidity and temperature)
• Housing (Urban growth of the neighbouring agglomeration)
• Ground transport infrastructure (International tarmac road crosses the site, heavy automobile and truck traffic inducing vibrations, pollution, and risk of accidents)
• Major linear utility (Pipeline crossing the southern necropolis)
• Localized utility (Brightly-coloured antenna on hill)
• Major visitor accommodation and associated infrastructure (Construction of a hotel close to the thermal springs)
• Management System/Management Plan (Lack of a management plan)

Since March 2011:

• War (Destruction due to the armed conflict since March 2011)
• Deliberate destruction of heritage (Perilous condition of the portico of the Temple of Bel and the Triumphal Arch)
• Illegal activities (illegal excavations)
• Financial resources (Lack of adequate funding for urgent conservation initiatives)

Destruction as well as ascertained and potential threats consequent to the armed conflict in Syria started in March 2011.

In progress

In progress

In progress

Total amount provided: USD 38,543 by the Flemish Government, USD 18,560 from the UNESCO Emergency Fund, USD 21,000 by the Government of the Netherlands

Total amount provided to the six Syrian World Heritage properties: 200,000 euros by the Italian Government; for built, movable and intangible heritage: 2.46 million euros by the European Union, USD 170,000 by the Flemish Government, 63,000 euros by the Austrian Government, USD 200,000 by the German Government; for cultural heritage under conflict: USD 200,000 by the Arab Regional Centre for World Heritage in Bahrain.

On 3 January 2022 and 24 January 2023, the State Party submitted state of conservation reports for the six Syrian World Heritage properties, which are available at https://whc.unesco.org/en/list/23/documents/, and include updated information on progress and challenges relating to some of the conservation issues at the property, as follows:

• Major challenges include the lack of international and financial support to implement the road map for the emergency consolidation, conservation and restoration of several archaeological monuments, the risk of further deterioration to damaged monuments due to weathering, the absence of a management structure at the site, and the fact that the population has not yet completely returned to the city of Palmyra;
• The results of the 2019 assessment of illegal pits (461 at the site) are recalled, with additional information referring to illegal excavations that have led to the discovery of several new burials that were found looted and vandalized;
• Following a first memorandum of understanding (MoU) signed in March 2022, the Directorate General of Antiquities and Museums (DGAM), the Syrian Trust for Development and the Institute for the History of Material Culture of the Russian Academy of Sciences signed an MoU for the second phase of the restoration of the Triumphal Arch in October 2022;
• Following the exchanges between the World Heritage Centre and the Directorate General of Antiquities and Museums of Syria (DGAM) regarding the creation of the international scientific task force, an international scientific committee has been formed under the responsibility of the DGAM, with a view to supporting the restoration of the property;
• Under the supervision of the DGAM, and with financial support from Russian institutions, a Syrian-Russian team began restoration work at the site of the Afqa spring, previously vandalized by extremist armed groups during the conflict. The spring is historically the reason of the prosperity and of the continuity of life in Palmyra, and its recovery would contribute to restoring the oasis and bringing back the population, including farmers, to the region;
• Rehabilitation work includes the restoration of the former museum of folk traditions and its transformation into a Visitor Center, and the restoration of the Hostel building in the sanctuary of the Temple of Bel, which will be used to accommodate experts and work teams;
• In order to encourage the return of the population, the Governorate of Homs, progressed in the rehabilitation of the city of Palmyra’s infrastructure and social, educational and health services, electricity networks, sanitation and drainage systems, roads and public spaces, etc. With support from the Red Crescent and the Adventist Development and Relief Agency (ADRA), two schools and 250 houses were restored. The Syriac Orthodox Patriarchate of Antioch funded the restoration of 50 residential buildings;
• On 28 October 2022, the DGAM submitted an International Assistance request to undertake a detailed survey of the Portico of Temple of Bel in order to define the technical requirements for its emergency consolidation;
• The preparation of a conservation management plan for the property is planned.

46.    General Decision on the World Heritage properties of the Syrian Arab Republic

The armed conflict in Syria started in March 2011 and escalated leading to significant violence and degradation of humanitarian conditions. It has inflicted damage on the six inscribed properties as well as on the 12 sites inscribed on the Tentative List. Sites have been damaged by shelling, fires, extensive illegal excavations, military use, construction violations, in addition to intentional destruction and inappropriate use of properties by internally displaced populations. Some sites remain at risk, as the result of the conflict, from both direct impact such as physical damage, but also from indirect implications such as loss of protection, exacerbated weathering or illegal constructions.

On 3 January 2022 and 24 January 2023, the State Party submitted state of conservation reports, available at http://whc.unesco.org/en/sessions/45COM/documents/. These reports collate available information from the branches of the Directorate General of Antiquities and Museums (DGAM) up to 31 December 2022. In some areas, access is extremely limited, with consequent constraints on available information. In particular, the site of the Ancient Villages of Northern Syria remains inaccessible owing to ongoing presence of armed groups, which prevents full understanding of the extent of damage at this property.

The State Party reported on actions carried out by the DGAM, despite the difficult working conditions, particularly with limited funding to support these efforts for the preservation of cultural heritage. At most of the properties, damage has been assessed and emergency conservation and urgent risk mitigation actions have been undertaken whenever possible. The DGAM has initiated high quality restoration work at a number of properties, although some concerns have been expressed about use of appropriate authentic replacement materials (such as ‘like for like’ stone in monument repair).

Recalling its intention to update its Tentative List in coordination with the World Heritage Centre, the State Party has provided updated information on the conservation of sites inscribed on the Tentative List as follows:

• For ‘Arwad Island’, DGAM received no new information about the potential tourism project previously reported ;
• In ‘Maaloula’, restoration works on residential buildings have been undertaken by inhabitants;
• At the ‘Noreas of Hama’, boundaries are being updated in order to enhance protection;
• At ‘Tartus: the Crusaders Citadel-City’, and ‘Ugrarit (Tell Shamra)’, maintenance works are being undertaken;
• At ‘Ebla’, ‘Mari (Tell Hariri) and Dura Europos’; no work has been undertaken;
• No new information is available for ‘Qasr al-Hayr ach-Charqi, a desert Castle’ and ‘Raqqa-Rafiqa: the Abassid City’;
• No information is provided for ‘Apamea (Afamia)’.

The 7.8-magnitude earthquake that struck south-eastern Türkiye, near the Syrian border on 6 February 2023, and the subsequent aftershocks, inflicted devastating damages on Syria’s already fragile cultural heritage. Damaged properties include the Ancient City of Aleppo, Crac des Chevaliers and Qalat Salah El-Din, and the Ancient Villages of Northern Syria. Damage was also reported at some sites on the Tentative List, including at Raqqa Rafiqa: the Abbsid. City and at Norias of Hama. Possible damage was reported at Arwad Island and Tartus: the Crusaders’ Citadel-City.  

Activities undertaken by UNESCO

• Since the extended 44th session of the Committee (Fuzhou/Online, 2021), UNESCO has pursued its actions to assist sustained efforts to safeguard cultural heritage of Syria;
• The joint publication with UNITAR “Ten Years of Conflict: the State of Conservation of cultural heritage in Syria” is being finalized.;
• The projects supported by the World Heritage Fund for Qal’at Salah El-Din (March 2020-April 2021) and for the Crac des Chevaliers (March 2019-December 2021) are completed;
• Assistance from the World Heritage Fund for sites in danger has supported a project (July 2021-December 2022) on damage assessment, emergency measures and the enhancement of the buffer zones of the Crac des Chevaliers and Qal’at Salah El-Din, and preparatory studies in view of the restoration of the Kalybe monument in the Ancient City of Bosra (November 2021-December 2022);
• Requests for assistance from the World Heritage Fund have been approved in 2023 for Site of Palmyra, Ancient City of Aleppo and Crac des Chevaliers and Qal’at Salah El-Din;
• Following the positive results of the work undertaken for the elaboration of the Desired State of Conservation for the Removal of the Ancient City of Damascus from the List of World Heritage in Danger (DSOCR), a number of meetings took place remotely between the World Heritage Centre, ICOMOS and the DGAM for the elaboration of the DSOCR for The Crac des Chevaliers and Qal’at Salah El-Din (meetings on 8 June and 20 December 2021) and for the Site of Palmyra (13 December 2021);
• Following the devastating earthquake of 6 February 2023, a UNESCO Rapid Assessment mission was carried out from 25 to 27 February 2023 to Ancient City of Aleppo. In addition, UNESCO led the Culture section of the Syria Earthquake Recovery Needs Assessment (SERNA).

Activities undertaken by the Advisory Bodies

• Since the extended 44th session of the Committee (Fuzhou/Online, 2021), ICOMOS has continued to work with the State Party and the World Heritage Centre to address the longstanding inclusion on the List of World Heritage in Danger of six World Heritage properties. Following the successful initial work to prepare a DSOCR for the Ancient City of Damascus, attention has been turned to Crac des Chevaliers and Qal’at Salah El-Din and Site of Palmyra, through meetings, preparation of outline documents and review of information provided by the State Party.
• ICOMOS continues to provide technical review of major works within the Ancient City of Aleppo, the Ancient City of Damascus and at Crac des Chevaliers and Qal’at Salah El-Din, that have been referred in conformity with Paragraph 172 of the Operational Guidelines;
• A provisional ICOMOS National Committee in Syria was accredited at the beginning of 2022. The expected outcomes of this initiative include fostering professional relations among local heritage experts, and with international experts;
• The ICOMOS Working Group on the Safeguarding of Cultural Heritage in Syria and Iraq continues to monitor conservation challenges and An active participation in international meetings has led to the production of new publications and web recordings. New directions include the impact of community participation, sustainability or climate change;
• ICOMOS participated in the workshop “Restoring Syrian Heritage and Reviving Communities”, organised by the Syria Trust for Development during Expo 2020 Dubai in March 2022, which resulted in the adoption of a declaration and recommendations. This was an opportunity to meet national and foreign stakeholders, as well as to better assess present needs. Recommendations were also provided in the framework of UNESCO MONDIACULT 2022 meetings on Arab Countries;
• The 6 February 2023 earthquake in Syria and Türkiye, and its subsequent aftershocks, represent a new challenge. ICOMOS issued statements and organised online Zoom expert meetings. The new ICOMOS Syria committee visited Aleppo with the UNESCO Rapid Assessment mission’s team and issued a report with recommendations. The Working Group on Syria and Iraq is trying to raise funds for equipment and urban interventions in historical cities.

It is recommended that the Committee reiterate its concerns about the high number of illicit excavations at the site, including the uncovered looted burials, as well as the risk of further damage to monuments, exacerbated by weathering and the lack of funding availability for emergency intervention and consolidation work.

The creation of an international scientific Task Force, with guidance provided by the World Heritage Centre, as well as the meetings that took place in July 2022, November 2022, and May 2023, to discuss the works undertaken to plan the restoration of the Triumphal Arch are welcome. This mechanism helps ensure that technical requirements meet international standards. A report was submitted in March 2023, providing information on the works carried out at the Triumphal Arch, demonstrating the quality of the methodology. The report provides a historical analysis of its construction and previous restorations, comprehensive archaeological studies focusing on its foundation and the archaeological fragments discovered during the excavations, which clarify the Arch’s structural stability. The report also presents a thorough analysis of material condition, 3D-modelling of the structure before and after its destruction as well as in relation to its hypothetical initial stage of construction, in addition to a reconstruction approach that would give priority to maintaining authenticity. The parts of the Arch that are at risk of collapse have been dismantled. In June 2023, the restoration project was submitted by the State Party for technical review by the World Heritage Centre and Advisory Bodies, in conformity with Paragraph 172 of the Operational Guidelines.

Plans to implement a first stage of consolidation of the portico of the Temple of Bel are also welcome, as is the proposed preparation of a conservation management plan for the property. These activities were among the main recommendations of the December 2019 UNESCO technical meeting on the recovery of the site.

The State Party is encouraged to continue transmitting to the World Heritage Centre, for examination by the Advisory Bodies, detailed information on any major project within the boundaries of the property or its buffer zone, before making any decisions that would be difficult to reverse, in conformity with Paragraph 172 of the Operational Guidelines. The interventions undertaken at the site of the Afqa spring, the Visitor Center, and the Hostel building, in addition to infrastructure works, are welcome, as they contribute to the revival of the site, including through the recovery of the oasis. These activities will encourage the return of inhabitants and allow for the accommodation of experts and work teams at the site, which will highly facilitate the implementation of restoration and recovery work.

Work on the elaboration of the Desired state of conservation for the removal of the property from the List of World Heritage in Danger (DSOCR) has been initiated remotely through collaboration between the World Heritage Centre, ICOMOS, ICCROM and the DGAM. A preliminary technical meeting occurred in December 2021, with further meetings planned for 2023, and substantial follow up is proposed including preparation of documents, specification of the DSOCR and identification of a programme of related corrective measures, consistent with the process and intent of the Operational Guidelines. This process should enable the DSOCR to be presented at the 46th session of the World Heritage Committee.

Given the challenges facing the property and the interest of the international community, it is highly desirable that the invited joint World Heritage Centre/ICOMOS/ICCROM Reactive Monitoring mission take place as soon as the situation allows, to enable a comprehensive assessment of the state of conservation of the property.

46.    General Decision on the World Heritage properties of the Syrian Arab Republic

Analysis and Conclusions of the World Heritage Centre, ICOMOS and ICCROM

The armed conflict in Syria has affected the six World Heritage properties and has substantially limited capacities to sustain and protect their Outstanding Universal Value (OUV), some of which remain threatened by ascertained and potential dangers. The earthquake of February 2023 has exacerbated the situation of some of the properties and poses an additional challenge to recovery efforts.

Illegal excavations across archaeological sites and tells in Syria have caused extensive and irreversible damage to those sites, a number of which are on Syria’s Tentative List. They are also a major source for the illicit trafficking of cultural property, providing looted artifacts to be sold in regional and international black markets.

It is recommended that the Committee commend the DGAM, heritage professionals in Syria and local communities who have made sustained efforts in monitoring and protecting cultural heritage, implementing first aid measures for its safeguarding and proceeding with restoration work for its recovery, despite the constraints. The State Party and the international community should be encouraged to include recovery actions of cultural heritage properties within the overall humanitarian, security and peace building response, and support recovery plans that promote community participation, sustainability and inclusion. In order to plan on the longer term, it is also recommended that the State Party is reminded of the importance of affording priority to overall planning for recovery through Master Plans and Management Plans, to be developed in line with the 2011 UNESCO Recommendation on the Historic Urban Landscape, and in consultation with the World Heritage Centre and the Advisory Bodies.

The World Heritage Centre and the Advisory Bodies will continue to support the identification of the necessary corrective measures and the development of DSOCRs, and have been successfully pursuing more flexible approaches and online engagement that have demonstrated that the preparation of DSOCRs can be progressed, despite the current circumstances and inability to schedule Reactive Monitoring missions at this time.

It is recommended that the Committee further encourage the State Party to plan for the future of the World Heritage properties according to international conservation charters and standards, in full consultation with the World Heritage Centre and the Advisory Bodies, also taking into consideration the 2018 Warsaw Recommendation on Recovery and Reconstruction. It is also appropriate to remind the State Party of its obligation to transmit to the World Heritage Centre, for examination by the Advisory Bodies, detailed information on future projects, before making any decisions that would be difficult to reverse, in conformity with Paragraph 172 of the Operational Guidelines, and that this obligation includes major restoration works.

It is recommended that the Committee also call for international and national heritage professionals to continue to unite for the safeguarding of Syria’s cultural heritage; and to further support its safeguarding through earmarked funds and contributions to the UNESCO Heritage Emergency Fund.

Taking into consideration that some of the cultural heritage sites remain under threat, it is recommended that the Committee repeat its previous call for all parties associated with the conflict in Syria to refrain from any action that could further damage the heritage of the country, in particular all World Heritage properties and sites included on the Tentative List, and to fulfil their obligations under international law, especially the United Nations Security Council Resolution 2347 of March 2017, in part by taking all possible measures to protect such heritage and preventing any damage that may result from targeting World Heritage properties, and support recovery plans that are based on community participation, sustainability and inclusion.

It is also recommended that the Committee reiterate its suggestion that the State Party consider ratifying the Second Protocol (1999) of the 1954 Hague Convention for the Protection of Cultural Property in the Event of Armed Conflict.

It is further recommended that the Committee also call upon all parties associated with the conflict in Syria and the international community, in particular the countries neighboring Syria, to ensure effective measures for the fight against illicit trafficking of cultural objects, in line with the UN Security Council Resolution 2199.