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World Heritage Essentials

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This part of the guidance is designed to introduce basic World Heritage concepts to a non-specialist audience. The implementation of the World Heritage Convention on the national level can be challenging for States Parties.

The following text explains the basics of the Convention to better understand its spirit and underlying principles. It further outlines good practices that assist complying with recommended international conservation standards to fully deploy the effectiveness of the Convention and to achieve its ultimate goals. The described indications aim to help readers understand the purpose of requirements described in the Operational Guidelines for the Implementation of the World Heritage Convention, and to act accordingly constructively and proactively.

History and purpose of the Convention

The Convention concerning the Protection of the World Cultural and Natural Heritage, usually referred to as the World Heritage Convention, was adopted in 1972 by the UNESCO General Conference. It is an international treaty that seeks to identify, protect, conserve, present and transmit heritage properties of Outstanding Universal Value (OUV) to future generations. Places recognized as having an OUV are considered to be of such exceptional cultural and/or natural significance as to transcend national boundaries. Their common importance counts for all humanity and thus needs to be preserved for humankind as a whole. The international community recognizes the capacity of heritage as a source to promote mutual understanding and appreciation and a means to help build peace.

The World Heritage Convention is rooted in the recognition that World Heritage belongs to all the peoples of the world, it is passed over generations, and that it is irreplaceable and plays a crucial role in the wellbeing of humankind. Therefore, as stated in a preambular paragraphs of the Convention text, ‘the deterioration or disappearance of any cultural or natural heritage constitutes a harmful impoverishment of the heritage of all the nations of the world’.

With 194 States Parties in 2023, the World Heritage Convention is today one of the most ratified international treaties in history and reflects the shared commitment of States Parties to protect all World Heritage properties included on the UNESCO World Heritage List for present and future generations.

How does the Convention work?

By ratifying the Convention, each State Party pledges to participate in its implementation. This involves international cooperation and assistance to conserve World Heritage properties situated on a Member State’s territory and concerns its responsibility to protect heritage in their territories. The Convention sets out the duties of States Parties ‘to take the appropriate legal, scientific, technical, administrative, and financial measures necessary for the identification, protection, conservation, presentation, and rehabilitation of this heritage (Article 5 of the Convention). States Parties to the Convention are encouraged to integrate the protection of the cultural and natural heritage into regional planning programmes, set up staff and services at their World Heritage properties, undertake scientific and technical conservation research, and adopt measures that give this heritage a function in the day-to-day life of a community. This commitment extends to the context of new developments and constructions.

Therefore, each State Party to the Convention shall try to protect the OUV of World Heritage properties. Such protection needs to be upheld also when facing the need to transition to renewable energies in order to mitigate greenhouse gas emissions and climate change.

Decision-making and governing

The decision-making and governing bodies of the Convention are the General Assembly of States Parties to the World Heritage Convention and the World Heritage Committee. The latter decides among other issues, whether or not to inscribe a nominated site on the World Heritage List, and also examines the state of conservation of properties inscribed on the World Heritage List. The Committee has developed and regularly updates the Operational Guidelines for the Implementation of the World Heritage Convention (OG). This document provides the formal guidance and provisions on how to operationalize the Convention and how to fulfil its mission.

The work of the World Heritage Committee is supported by UNESCO’s World Heritage Centre, which acts as the Secretariat of the World Heritage Convention, and by three Advisory Bodies – the International Centre for the Study of the Preservation and Restoration of Cultural Property (ICCROM), the International Council of Monuments and Sites (ICOMOS) and the International Union for Conservation of Nature (IUCN).

The World Heritage List

The World Heritage List includes cultural, natural and mixed (cultural and natural) properties which have met at least one of ten criteria of Outstanding Universal Value and requirements for authenticity, integrity, as well as protection and management. Sites to be included on the World Heritage List are nominated by States Parties in whose territory the cultural or natural site is located. These nominations undergo an evaluation process and can only be inscribed on the List by the World Heritage Committee.

In addition, cultural landscapes are also recognized as a special category, which are inscribed on the World Heritage List as cultural properties and represent the ‘combined works of nature and of man’ in line with Article 1 of the Convention (OG 47).

An inventory of sites which each State Party considers suitable for nomination to the World Heritage List is published on the UNESCO World Heritage Centre website as a Tentative List (OG paragraphs 62-76). The preparation of a Tentative List provides the basis for a nomination file. Sites added to the Tentative List need to consider being of potential Outstanding Universal Value (OUV).

If a State Party prepares a nomination of a site for the Tentative List, any development projects that are planned or underway that may potentially impact the site’s potential OUV must be taken into consideration. This reflects awareness and allows for the development of measures to protect the site.

Further guidance on the preparation of Tentative Lists can be found in paragraphs 62–67 of the Operational Guidelines. For more information, see also the Guidance on Developing and Revising World Heritage Tentative Lists.

Outstanding Universal Value

World Heritage properties are inscribed on the World Heritage List for their exceptional cultural and/or natural values for all humanity. This importance is expressed through the Outstanding Universal Value (OUV) of a site. The OUV is endorsed by the World Heritage Committee in the Statement of Outstanding Universal Value (SOUV), usually at the time of inscription.

The Operational Guidelines define the concept of Outstanding Universal Value as ‘cultural and/or natural significance, which is so exceptional as to transcend national boundaries and to be of common importance for present and future generations of all humanity. As such, the permanent protection of this heritage is of the highest importance to the international community as a whole.’ (OG paragraph 49)

States Parties through the ratification of the World Heritage Convention and the inscription of a property on the World Heritage List, pledge to protect a property and its OUV for present and future generations. The OUV is established at the time of inscription and can only be changed by a new nomination process with approval by the World Heritage Committee.

The concept of OUV is at the heart of the World Heritage system. It has been revised and reviewed over the years to better adapt to and reflect humanity’s heritage. It thus includes new categories of heritage and has broadened the perspective for a more inclusive recognition of heritage.

A natural and/or cultural heritage site is inscribed on the World Heritage List by the World Heritage Committee based on the existence of the following three pillars:

  1. it meets one or more criteria for cultural and/or natural heritage;
  2. it meets the qualifying condition(s) of integrity and authenticity (authenticity only applicable to cultural and mixed sites); and
  3. it has adequate protection and management in place to ensure the long-term protection of the property.
The three pillars of the Outstanding Universal Value (adapted from Managing Cultural World Heritage, UNESCO et al., 2013; ‘Managing Natural World Heritage’ UNESCO et al., 2011).

For most World Heritage properties, the physical condition of the attributes conveying the expressed values described in the OUV at the time of its inscription on the World Heritage List serves as the baseline for any monitoring activity henceforward; any benchmarking should be done in view of and against this baseline. The same baseline also accounts for impact assessments that concern World Heritage properties. Nevertheless, there are special cases when a site is inscribed on the World Heritage List in a vulnerable condition regarding its integrity, in which case management actions need to be undertaken to improve the vulnerable conditions prior to establishing baselines.

The Statement of Outstanding Universal Value (SOUV) is a short narrative text that describes the values and attributes of the World Heritage property at the time of inscription. It summarizes the reasons why a property is considered to be of Outstanding Universal Value, how it satisfies the relevant criteria, the conditions of integrity and (for cultural properties) authenticity, and how it meets the requirements for protection and management in order to sustain OUV and its attributes in the long term. It serves as a brief description of the totality of qualities and values, including the tangible and intangible attributes that express and convey the property’s OUV (OG paragraph 155). The SOUV is an essential reference for the conservation and management of the World Heritage property and serves several purposes as it ideally

  • guides the assessment of the state of conservation of a property;
  • summarizes the baseline condition for the identification and protection of a property’s attributes, which forms the basis for monitoring on the national level and for the Reactive Monitoring processes and Periodic Reporting;
  • provides information for any decision-making concerning interventions that might have an impact on a World Heritage property. 

The Statement of Outstanding Universal Value of a World Heritage property is key for the assessment of possible impacts of development proposals, including infrastructural projects, changes in land-use and modifications to legal frameworks.

The UNESCO World Heritage Centre’s website includes a section dedicated to each World Heritage property, including its Statement of Outstanding Universal Value. World Heritage properties are listed by country and each property has a page where its Statement of Outstanding Universal Value approved by the World Heritage Committee, can be found.

  • Wind energy project proponents should check as early as possible in the planning process if the proposed project location has any visual, physical or social relation to a World Heritage property – the distance of the concerned areas may vary and reach far beyond the WH property and its buffer zones depending on the characteristics of the embedding context or ‘setting’ (relevant information might also be included in the regional/local level spatial planning tools).
  • If a project may in any way affect a World Heritage property, its buffer zone or its wider setting, the wind energy project proponents should proactively seek to collect any relevant information concerning the property’s OUV to get a good grasp of the overarching character and significance of the area considered for development and ensure that a specific impact assessment is conducted concerning the proposed project actions’ impact on the OUV of the property.
  • Stakeholder mapping should be undertaken early in the planning phase and involve, as early as possible, local communities and rights-holders along with environmental and heritage authorities, other relevant authorities and stakeholders. This will help identify any potential restrictions related to the planned project in the context of World Heritage conservation.
  • The Statement of Outstanding Universal Value of a World Heritage property and the nomination file prepared for its inscription on the World Heritage List serve as the key reference when identifying and mapping the attributes, the tangible or intangible elements, features and processes that convey the OUV of a property. However, detailed and systematic identification of a property’s attributes may be missing or not available in adequate depth. Therefore, early engagement with the relevant authorities and stakeholders, including environmental and heritage authorities, are pertinent. ➔ See impacts of Wind Energy projects and their assessment

A systematic and comprehensive assessment of values and attributes is crucial for the effective protection of World Heritage properties. The inclusion of a SOUV in World Heritage nominations, however, only became obligatory in 2008. For all the properties inscribed prior to that year, States Parties are requested to develop a Retrospective Statement of Outstanding Universal Value (RSOUV) to complete their nomination files.

Other values

In addition to the OUV, World Heritage properties may also have other tangible and intangible values, which can be particularly important to rights-holders and other stakeholders (including indigenous peoples) at the national, regional and local levels. These could be formally designated or informally recognized. Nevertheless, they are vital for the effective planning and management of World Heritage properties and their wider setting. It is therefore important to have a comprehensive understanding of these values (including but not restricted to the ones relevant for heritage and conservation) to ensure that benefits of the protection and management are delivered for the wider society. National agencies should thus also identify those values that are not strictly linked to the OUV and share the information at local, regional and national levels as well as with the project proponents.

Further information about the importance of other values could be found in impacts of Wind Energy projects and their assessment.

The multi-layered value characteristic of World Heritage properties should be taken into account during a value assessment as well as an impact assessment process. National and local values are also conveyed by attributes that may contribute to protect the conditions of authenticity and integrity of World Heritage properties. The relationship between attributes and values are often complex – one attribute might convey several values, and one value might be conveyed by multiple attributes. For this reason, both a value assessment or the identification of attributes that form the Outstanding Universal Value (OUV) and an impact assessment should recognize that the OUV, national and local values and attributes together form an interconnected system.
(Image adapted from the Concept Note document of a pilot regional course on Interpretive Planning at World Heritage properties completed its second module.

Other values

World Heritage properties are inscribed on the World Heritage list under at least one of the ten criteria for inscription on the World Heritage List. The criteria justify why a place is worth being inscribed on the World Heritage List.

Criteria (i) to (vi) refer to the cultural values of properties whereas criteria (vii) to (x) apply to the natural values of properties. Mixed World Heritage properties must meet at least one cultural and one natural criterion.

(i)

to represent a masterpiece of human creative genius;

(ii)

to exhibit an important interchange of human values, over a span of time or within a cultural area of the world, on developments in architecture or technology, monumental arts, town-planning or landscape design;

(iii)

to bear a unique or at least exceptional testimony to a cultural tradition or to a civilization which is living or which has disappeared;

(iv)

to be an outstanding example of a type of building, architectural or technological ensemble or landscape which illustrates (a) significant stage(s) in human history;

(v)

to be an outstanding example of a traditional human settlement, land-use, or sea-use which is representative of a culture (or cultures), or human interaction with the environment especially when it has become vulnerable under the impact of irreversible change;

(vi)

to be directly or tangibly associated with events or living traditions, with ideas, or with beliefs, with artistic and literary works of outstanding universal significance. (The Committee considers that this criterion should preferably be used in conjunction with other criteria);

(vii)

to contain superlative natural phenomena or areas of exceptional natural beauty and aesthetic importance;

(viii)

to be outstanding examples representing major stages of earth's history, including the record of life, significant on-going geological processes in the development of landforms, or significant geomorphic or physiographic features;

(ix)

to be outstanding examples representing significant on-going ecological and biological processes in the evolution and development of terrestrial, fresh water, coastal and marine ecosystems and communities of plants and animals;

(x)

to contain the most important and significant natural habitats for in-situ conservation of biological diversity, including those containing threatened species of outstanding universal value from the point of view of science or conservation.

Qualifying conditions of integrity and authenticity

Integrity

“Integrity is a measure of the wholeness and intactness of the natural and/or cultural heritage and its attributes.”

Operational Guidelines, Paragraph 88.

The Operational Guidelines further specify that the condition of integrity requires assessing the extent to which the property:

  1. includes all elements necessary to express its Outstanding Universal Value;
  2. is of adequate size to ensure the complete representation of the features and processes which convey the property’s significance;
  3. suffers from adverse effects of development and/or neglect.
  1. All properties nominated for inscription on the World Heritage List shall satisfy the conditions of integrity.
  2. Integrity is a measure of the wholeness and intactness of the natural and/or cultural heritage and its attributes. Examining the conditions of integrity therefore requires assessing the extent to which the property:
    1. includes all elements necessary to express its Outstanding Universal Value;
    2. is of adequate size to ensure the complete representation of the features and processes which convey the property’s significance;
    3. suffers from adverse effects of development and/or neglect.

    This should be presented in a statement of integrity.

  3. For properties nominated under criteria (i) to (vi), the physical fabric of the property and/or its significant features should be in good condition, and the impact of deterioration processes controlled. A significant proportion of the elements necessary to convey the totality of the value conveyed by the property should be included. Relationships and dynamic functions present in cultural landscapes, historic towns or other living properties essential to their distinctive character should also be maintained.
  4. For all properties nominated under criteria (vii) - (x), bio-physical processes and landform features should be relatively intact. However, it is recognized that no area is totally pristine and that all natural areas are in a dynamic state, and to some extent involve contact with people. Biological diversity and cultural diversity can be closely linked and interdependent and human activities, including those of traditional societies, local communities and indigenous peoples, often occur in natural areas. These activities may be consistent with the Outstanding Universal Value of the area where they are ecologically sustainable.
  5. In addition, for properties nominated under criteria (vii) to (x), a corresponding condition of integrity has been defined for each criterion.

  6. Properties proposed under criterion (vii) should be of Outstanding Universal Value and include areas that are essential for maintaining the beauty of the property. For example, a property whose scenic value depends on a waterfall, would meet the conditions of integrity if it includes adjacent catchment and downstream areas that are integrally linked to the maintenance of the aesthetic qualities of the property.

  7. Properties proposed under criterion (viii) should contain all or most of the key interrelated and interdependent elements in their natural relationships. For example, an ‘ice age’ area will meet the conditions of integrity if it includes the snow field, the glacier itself and samples of cutting patterns, deposition and colonization (e.g. striations, moraines, pioneer stages of plant succession, etc.); in the case of volcanoes, the magmatic series should be complete and all or most of the varieties of effusive rocks and types of eruptions be represented.

  8. Properties proposed under criterion (ix) should have sufficient size and contain the necessary elements to demonstrate the key aspects of processes that are essential for the long-term conservation of the ecosystems and the biological diversity they contain. For example, an area of tropical rain forest will meet the conditions of integrity if it includes a certain amount of variation in elevation above sea-level, changes in topography and soil types, patch systems and naturally regenerating patches; similarly, a coral reef should include, for example, seagrass, mangrove or other adjacent ecosystems that regulate nutrient and sediment inputs into the reef.

  9. Properties proposed under criterion (x) should be the most important properties for the conservation of biological diversity. Only those properties which are the most biologically diverse and/or representative are likely to meet this criterion. The properties should contain habitats for maintaining the most diverse fauna and flora characteristic of the bio-geographic province and ecosystems under consideration. For example, a tropical savannah would meet the conditions of integrity if it includes a complete assemblage of co-evolved herbivores and plants; an island ecosystem should include habitats for maintaining endemic biota; a property containing wide ranging species should be large enough to include the most critical habitats essential to ensure the survival of viable populations of those species; for an area containing migratory species, seasonal breeding and nesting sites, and migratory routes, wherever they are located, should be adequately protected.

Paragraphs 87–95 of the Operational Guidelines on the Implementation of the World Heritage Convention.

Integrity of a World Heritage property is an important consideration for both natural and cultural properties and should be evaluated in an impact assessment. This may relate to the visual characteristics of associated infrastructures in the wider setting of a World Heritage property that may alter or dominate or intrude on the existing structural, functional, and visual characteristics of the property. For natural World Heritage properties consideration should be given to the ecosystem integrity.

The height and dimension of wind turbines and ancillary facilities do not easily merge into a traditional landscape or townscape as they are likely to interfere with important viewpoints and vistas. Indeed, wind energy facilities can change the sense of place in such a strong way that it can threaten the integrity of a property.

➔ See also Tool 5

For further information on visual aspects related to OUV, see paragraph 104 of the Operational Guidelines and consult the Report of the International Meeting on Visual Integrity (Agra, India, 6–9 March 2013).

Authenticity

Authenticity requires that a property is a truthful and credible expression of its cultural values and that it cannot be represented by a copy or recreation. The condition for authenticity only applies to cultural and mixed World Heritage properties that are inscribed on the World Heritage List under criteria (i), (ii), (iii), (iv) or (vi). The concept of authenticity, however, is evolving and its application and understanding may vary in different cultural contexts of a World Heritage property. It may refer to a physical aspect of a site, but also to intangible aspects such as traditional knowledge or practices as well as religious or spiritual rituals related to physical attributes.

Such conditions may call for specific expertise and insights to fully grasp the implications they may have on potential development projects in the area and the impacts these may generate. Project proponents are therefore encouraged to seek expert advice at an early stage, to ensure due consideration of the aspects that need particular attention.

The authenticity of a property may refer to the attributes of the property and sources of information in which a cultural value can be expressed, including:

  • form and design;
  • materials and substance;
  • use and function;
  • traditions, techniques and management systems;
  • location and setting;
  • language, and other forms of intangible heritage;
  • spirit and feeling; and
  • other internal and external factors.

(OG paragraph 82)

Impact assessments of development proposals thus need to evaluate the potential impacts on the attributes of a property’s OUV to ensure that the authenticity remains intact.

Authenticity can be compromised for instance by unsuitable conservation works and physical negligence of a site, as well as ignoring the key aspects and sources of information through which the property and its attributes express the heritage values. The disappearance of cultural traditions and the fragmentation of communities could also be compromising factors.

Depending on the characteristics of a site, wind energy facilities have the potential to negatively affect the authenticity of a property if not planned and conducted with the necessary prudence and care.

The construction works for the foundations of wind turbines for example can affect the long-term preservation of unexcavated archaeological heritage (even if preliminary excavation is carried out on the spot of the wind turbines) and may threaten the authenticity of cultural World Heritage properties. ➔ See the ‘overall impacts of wind energy projects’ in Impacts of Wind Energy projects and their assessment

Protection and management

In line with the provisions of the World Heritage Convention, all World Heritage properties need adequate long-term legislative, regulatory, institutional and/or customary protection and management to ensure their safeguarding. The most effective highest level of national protection should be provided for the property itself from a legal perspective. Wherever necessary for its appropriate protection, further protection could be put in place through the creation of a buffer zone or similar mechanisms that establish complementary legal and/or customary restrictions for development inside or nearby vulnerable areas.

Effective management plays a central role in ensuring the long-term protection of World Heritage properties, including their OUV and other heritage values. The States Parties to the Convention have also adopted various policy instruments to assist with the implementation of the Convention, including the Policy for the Integration of a Sustainable Development Perspective into the Processes of the World Heritage Convention. This policy document stipulates that the management system of a site – be it natural, cultural, or mixed – should integrate sustainable development principles. Moreover, the management plan or system should cover buffer zones and the wider setting. (See below in the ‘Spatial areas of World Heritage properties and their importance for protection and management’)

The 2007 Policy Document on the Impacts of Climate Change on World Heritage Properties encourages States Parties to include aspects of the impacts of adaptation to and mitigation of climate change in a World Heritage property, and ensure that these are properly assessed, reported and managed.

World Heritage management plans (documenting the management system of World Heritage properties) are a good source of information for project proponents in general. Besides information about values and attributes, the document might provide mechanisms that support intersectoral dialogue and tools to facilitate early planning for example through the early detection of conflicting interests. Nevertheless, information relevant for project proponents might be included in other national data sources (inventories/databases, spatial planning tools, guidance documents, etc.)

Adequate management system for a World Heritage property (source: Managing Cultural World Heritage, UNESCO et al., 2013; Managing Natural World Heritage, UNESCO et al., 2011).
  • Project proponents should ensure that the project proposals will not have an adverse impact on the Outstanding Universal Value of a World Heritage property. For this purpose, the project proponents should check if World Heritage related information is provided in development strategies and other policy and planning documents. In close consultation with site managers, rights-holders and responsible agencies the project proponents should gather all relevant and up-to-date information concerning a World Heritage property to get a clear understanding of the national and local legal and institutional frameworks for heritage protection in place that need to be considered in the planning of the wind energy project.
  • An appropriate impact assessment needs to be conducted for each project proposal that might have an impact on the Outstanding Universal Value of a World Heritage property. For any negative impact predicted in relation to the proposed project actions, foremost consideration should be given to avoidance, for example, through alternative site selection. (This request is also set out in paragraph 118bis of the Operational Guidelines).
  • With regard to the international responsibilities, wind energy project proponents should be aware of the process set out in paragraph 172 of the Operational Guidelines. It invites States Parties to inform the World Heritage Committee, through UNESCO’s World Heritage Centre, about any plans for ‘major restorations or new constructions, which may affect the Outstanding Universal Value of the property’. Proposals for renewable energy projects, including wind energy developments should therefore be communicated to the UNESCO World Heritage Centre as soon as possible in the early planning stage. This also applies to proposals located in the buffer zone or in the wider setting of a World Heritage property.

Attributes (conveying Outstanding Universal Value)

Attributes are tangible and intangible elements (cultural and natural), features and processes that express, convey, or reflect values. Attributes can be physical qualities, material fabric or other tangible features, but can also be processes, social arrangements, or cultural practices as well as intangible aspects such as associations and relationships. In the context of natural properties, attributes are often referred to as ‘features’. Attributes help understand and link the values of a heritage place with its constituting tangible elements, processes, or intangible dimensions, and is a term that is used for the World Heritage properties to describe how its OUV is identified and conveyed.

The OUV of a property (with the conditions of integrity and/or authenticity and an adequate management system) encompasses one or more criteria under which the property has been inscribed on the World Heritage List and which justify why a place is worth being inscribed on this List (see also under the description of the ten criteria). The attributes that convey the OUV would relate to this or these criteria and overall, to the OUV of the property.

The identification of tangible and intangible attributes conveying the OUV of a World Heritage property and their systematic mapping (in the sense of collecting and arranging information) is a helpful tool for the property’s long-term protection and management. Attributes often carry multiple values and thus all should be considered, including other heritage values that are not part of but may be supporting the OUV.

The identified set of attributes of a property is useful for:

  • the establishment of an adequate management system or plan as it sets out the elements that need to be maintained in order to sustain the OUV;
  • monitoring the state of conservation; and
  • conducting any type of impact assessment, as it defines the thresholds against which potential impacts on the OUV can be assessed (including the assessment of the scale of positive or negative impacts and the proposal of potential mitigation measures).

The agreed set of attributes also facilitate their understanding for all stakeholders and enable a participatory governance approach for the protection and management of World Heritage properties. ➔ See Note 1 for identifying attributes

For the evaluation of possible impacts from wind turbines, relevant attributes need to be examined on a case-by-case basis also with a consideration for the different phases of the wind project’s life cycle:

  • planning (siting) and commissioning;
  • construction;
  • operation and maintenance with potential lifetime extension and repowering;
  • end-of-life, decommissioning with dismantling and removal.

Each of these phases may have different impacts on the built and natural environment, in particular habitats and species, and possible seasonal patterns such as the agricultural cycle.

Attributes are needed as indicators to assess the overall vulnerability of a World Heritage property with regard to wind energy developments or help to update an already existing ‘sensitivity map’.

➔ See ‘wind energy lifecycle’ in Wind Energy Essentials and Note 2

Mapping of attributes conveying the Outstanding Universal Value of a site has become a requirement for the preparation of nomination files in response to points 3.1.d, 4a, 6a in the nomination format (Annex 5 of the Operational Guidelines – Format for the Nomination of Properties for Inscription on the World Heritage List). Still, the systematic identification and listing of attributes is yet missing for a number of properties inscribed on the World Heritage List before this trend. The Periodic Reporting exercise emphasizes its importance and fosters the identification of missing attributes.

Identifying the attributes requires a good understanding of a property and its OUV. Therefore, the task should be led by the responsible national bodies who should also ensure that values and attributes are identified and assessed in a systematic way ideally involving stakeholders’ consultations.

If the mapping takes place or needs updating after an inscription, the process should also involve consultation with stakeholders and should be carried out independently from any specific project plan.

➔ See Note 1 and Impacts of Wind Energy projects and their assessment

Another benefit of mapping a property’s attributes is to highlight the spatial connections between a property and its surrounding environment, meaning the buffer zone (if there is one) and the wider setting. Moreover, such maps may convey information on the specificities, vulnerabilities and intrinsic or extrinsic characteristics of a World Heritage property that can be very helpful for the identification of potentially suitable areas for wind energy development. See NOTE 2

For the sake of transparency, the description of attributes should be rendered in a clear and straightforward language to ensure that the interested public, including stakeholders and project proponents, understand the World Heritage property’s characteristics and related protection requirements.

Spatial boundaries of World Heritage properties and their importance for protection and management

Boundaries of World Heritage properties

Clearly defined boundaries are a requirement by the Convention and are key for the effective protection and management of a World Heritage property. For the definition of the property’s physical delimitation, the OUV and its attributes are the key parameters. The area must have the most effective possible national protection from a legal perspective (usually a protection that falls under the regulation for cultural and/or natural heritage protection) and management must be aligned with the requirements set out in the Operational Guidelines.

A map of the boundaries of all World Heritage properties and their buffer zone (if there is one) is available on the UNESCO World Heritage Centre website. Additionally, these are usually part of national, and in many cases GIS-based, databases for protected cultural and/or natural heritage areas and assets (archaeological sites, listed buildings, monuments, protected historic areas, nature habitats, nature parks, etc.). National, regional and local authorities should refer to these official sources of information when evaluating project applications. Likewise, the areas of World Heritage properties should be included in spatial planning documents and zoning maps. This ensures their consideration both by wind energy project proponents when choosing a location for their project and by the decision-making national, regional and local authorities in the evaluation of planning applications.

Schematic image concerning World Heritage properties’ boundaries, buffer zones and the wider setting. Depending on the OUV of a World Heritage property, the wider setting in some cases could be a detached area from the property and its buffer zone, but still could have a functional relationship with the property’s OUV and could play a supporting role for its protection and preservation. (The detached area of the wider setting could for example be a resting place for migratory birds that form part of the OUV.)

Note that some World Heritage properties are ‘transboundary’ sites. In such case the area of the property and its buffer zone (if any) is situated in the territory of more than one neighbouring country (State Party) although forming one continuous area.

Schematic illustration of spatial boundaries of transboundary World Heritage properties.

World Heritage properties could also be part of so-called ‘serial properties’. Such properties comprise several distinct components that may be situated in one or several countries. In the latter case, the property is then referred to as a serial ‘transnational’ or in particular cases, a ‘transregional’ World Heritage property.

Schematic illustration of boundaries of serial and serial transnational World Heritage properties.

Buffer zone(s)

A buffer zone is an area officially defined to surround a World Heritage property, equipped with adequate legal and management functions that provide a layer of protection. This generally includes the immediate setting of a property and encompasses important views and other areas that are functionally important as a support to protect the property. Buffer zones should be integral part of the management system of a World Heritage property, with complementary legal and/or customary frames and management provisions to control development and land-use.

The legal protective measures in place in the buffer zone may differ from those in place for the World Heritage property. However, as part of spatial planning and zoning mechanisms buffer zones need to be taken into consideration during planning and decision-making processes. They could be areas protected at national level, in order to fulfil their supportive role for the World Heritage property. In this context, the potential of buffer zones should be fully harnessed. It needs to be understood not only as added layer of protection but also as a planning tool to enhance mutual benefits for local and other concerned communities and for the heritage itself.

Buffer zones are not an integral part of the World Heritage property as they do not include attributes of OUV. Nevertheless, they play a fundamental role in supporting the protection of World Heritage properties. So, policies affecting the buffer zone(s) need to be based on a comprehensive analysis of the OUV and refer to it.

Any World Heritage related measures in place in a buffer zone should be integral part of a property’s management system or Management Plan and should, therefore, be made available to the wider public, in particular for planning and development agencies/firms. Measures should focus on the supporting role of the buffer zone in protecting the OUV. Information regarding the buffer zone should include a map indicating its accurate boundaries and details on the justification for its designation, its physical characteristics, authorized uses, as well as an overview of all relevant and related policies.

Wider setting

While the buffer zone occupies the immediate setting of a site, the wider setting is the extended environment of a World Heritage property, and it is part of or contributes to the property’s significance and distinctive character. While the boundaries of World Heritage properties and their buffer zones are clearly delineated areas, and usually form part of national inventories on protected cultural and natural heritage, it is important to note that World Heritage properties are not isolated zones. On the contrary, properties are strongly connected to their surrounding and beyond physical and visual connections, they form part of physical, economic, cultural, spiritual, and social processes and practices (customs, traditional knowledge, use or activities, spiritual practices, and other forms of intangible heritage aspects), ecosystems, communities and societies that exist beyond any borders. Hence their OUV is supported by these interdependencies and relationships.

The wider setting of a World Heritage property may include protected and unprotected areas, under different national/regional/local legislation. While it is rather rare to find proposals for wind energy projects inside a World Heritage property and its buffer zones, proposals for development further at a distance, in the so-called ‘wider setting’, are much more frequent. The terms refer to areas that count for the protection of a property although they are not officially part of the delineated area of a property nor of the buffer zone (if there is a buffer zone). Indeed, they often ‘stage’ a property in its landscape or alike. Accordingly, changes in these areas have the potential to impact directly or indirectly on OUV.

Although its identification is not a statutory obligation, the wider setting of a property may play an important role in supporting the protection of a property’s OUV. This role should be considered in the management as much as in planning proposals and especially in the impact assessment processes. The Operational Guidelines underline the importance of ‘an integrated approach to planning and management […] to guide the evolution of properties over time and to ensure maintenance of all aspects of their Outstanding Universal Value.’ It also highlights that ‘this approach goes beyond the property to include any buffer zone(s), as well as the broader setting’ (OG paragraph 112).

The wider setting of a World Heritage property is dependent on numerous factors including the nature of the attributes, boundaries of the property and its buffer zone, and the surrounding environment. Therefore, the concept and definition of the wider setting of a World Heritage property will vary from site-to-site, according to the characteristics of a property and the planned changes.

The Operational Guidelines (paragraph 112) refer to the setting as being potentially related to a property through its:

  • Topography (like hills, mountains, rivers);
  • Natural environment (like character and type of the surrounding landscape and/or seascape);
  • Built environment (like links between historic buildings and urban areas);
  • Infrastructure;
  • Land use patterns;
  • Spatial organization;
  • Visual relationships (between attributes and the setting);
  • Social and cultural practices;
  • Economic processes;
  • Other intangible dimensions of heritage: perceptions, associations (like historical, artistic, literary, scenic).

The UNESCO Resource Manual for preparing World Heritage Nominations UNESCO Resource Manual for preparing World Heritage Nominations states:

  • Where the setting is a part of, or integral to the Outstanding Universal Value of a property, then it should be part of the inscribed property, or in some cases, such as extensive views, part of the buffer zone. Where the setting may assist in the appreciation of the Outstanding Universal Value, but does not contribute to the Outstanding Universal Value, then it is desirable that it be incorporated in the buffer zone or otherwise protected.

The ICOMOS ‘Xi’an Declaration on the Conservation of the Setting of Heritage Structures, Sites and Areas’ (2005) states that the setting of a heritage structure, site or area is defined as the immediate and extended environment that is part of, or contributes to, its significance and distinctive character. Beyond the physical and visual aspects, the setting includes interaction with the natural environment; past or present social or spiritual practices, customs, traditional knowledge, use or activities and other forms of intangible cultural heritage aspects that created and form the space as well as the current and dynamic cultural, social and economic context.

Despite the above references, in most cases the wider setting for a World Heritage property has not been well defined (neither as a geographical area, nor as a description in the Statement of Outstanding Universal Value). Therefore, if information in adequate detail has not been included in the nomination dossier prepared for the inscription of the property on the World Heritage List or in the management plan or other already available documents related to the property, the connection between a property’s OUV and the wider setting can be explored by the relevant national bodies (including the site managers) through scientific research and vulnerability assessments (➔ See Note 2). Results will need to be explained and made available for project proponents, decision-makers, and stakeholders. Dedicated Strategic Environmental Assessments could also support the integration of the setting in planning and policy mechanisms. (➔ See also ‘Strategic Environmental Assessment’ in Impacts of Wind Energy projects and their assessment).

The wider setting could closely relate to the visual or ecological integrity of a property. For this reason, there are areas that have a functional relationship to a property.

As an example, if a World Heritage property’s OUV includes a lake or a wetland area, the rivers flowing into the lake or feeding the wetland area will be highly important for protecting its integrity. A more relevant example for wind energy developments could relate to migratory bird species, and the migratory flyways outside the boundaries of a property and its buffer zone. Clearly discernible boundaries for such areas or zones are in most cases difficult to be outlined. Nevertheless, they cannot be disregarded neither for the protection and management of a property, nor when planning changes or projects.

A thorough understanding of a World Heritage property and its wider setting helps to manage a site effectively and facilitates the planning processes. Vulnerability assessments can support the establishment of adequate planning regulations and other protection and management mechanisms or improve the ones that are already in place. The result of such assessments and the mapping of sensitive areas could assist in a systematic way in the identification of potential development and exclusion zones. Such tools create transparency for all actors involved and contribute considerably to more planning security and reliability. (➔ See Note 2)

The relationship between the wider setting and project planning

Spatial boundaries of World Heritage properties and their implications for protection and management have a high importance from the project planning perspective as well. As the OUV of a World Heritage property is closely linked with the property’s boundaries, the impacts of planned and proposed changes or projects may fail to pay attention to potential impacts from outside these well-defined and mapped lines (that includes usually only the boundaries of the property and its buffer zone, if there is one). Nevertheless, proposed changes, developments/projects planned outside the boundaries and the buffer zone could have a strong influence on the property’s OUV and the attributes conveying it. Therefore, impact assessments need to consider impacts also outside the defined boundaries and extend to the wider setting of a World Heritage property and pay attention to areas of influence.

States Parties should further recognise that, for many World Heritage properties, achieving sustainable development will require acting at a scale that is much larger than the property itself and that, in the process, some dimensions of sustainable development may prove to be of greater relevance than others. Thus, States Parties should integrate conservation and management approaches for World Heritage properties within their larger regional planning frameworks, giving consideration in particular to the integrity of socio-ecological systems.

  • In many cases the wider setting of a World Heritage property will not be identified and included in relevant national/regional/local planning documents that would form the basis of information for wind energy proponents. In these cases, the wider setting of a World Heritage property will need to be identified as part of the impact assessment process for specific wind energy project proposals.
    ➔ See the impact assessment process (especially ‘scoping’) in Impacts of Wind Energy projects and their assessment
  • Project proponents should be aware of the potential negative impacts wind energy installations may have on the values of a World Heritage property – even from afar, if located in the wider setting. Not only wind turbines have the potential to impact on a setting: ancillary facilities, access roads and vehicle or vessel traffic can also cause adverse effects in multiple ways. They can disturb terrestrial or marine habitats or affect intangible expressions connected to properties.
  • For the above reasons, national and regional strategy documents related to wind energy development should consider World Heritage properties. Additionally, at an early stage of the planning process, wind energy project proponents should seek cooperation with organizations in charge of the protection and management of a World Heritage property that might be affected by the planned project. Early exchanges allow sharing information and identifying areas potentially suitable for wind energy developments or help exclude areas from the wind energy planning zones that are unsuitable from a World Heritage perspective.
  • The selection of areas for wind energy proposals needs to be based on careful and well-informed decisions. Decision-making should be founded and assisted by the result of comprehensive assessments and dedicated studies (like sensitivity mapping and impact assessment reports). These methods enhance transparent, evidence-based, and inclusive processes, and inspire a climate of trust and reliability among project proponents, site managers, heritage specialists, rights-holders, and stakeholders. Moreover, it improves the proactive protection of the OUV, by taking due account of the needs of both World Heritage protection and green energy development.
  • The preparation of planning for a wind farm within or near a World Heritage property should only proceed after an impact assessment has been carried out based on a clear understanding of the property and its OUV. Any potential adverse impact should be avoided or, if possible, mitigated. If mitigation or alternatives that pose no harm to the World Heritage property are not possible, the implementation of the project in the proposed location would be incompatible with the maintenance of the World Heritage status (and the wind energy project should be located elsewhere).
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