4.1

Governance

KEY POINTS
  • Governance The interactions among structures, processes and traditions that determine how power and responsibilities are exercised, how decisions are taken and how different actors have their say in relation to the identification, protection and management of the World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. property or the heritage place. is about who makes decisions, what instruments they use to do so and what responsibilities and processes are involved in relation to the identification, protection and management, and sustainable use of the heritage place.
  • Achieving effective and equitable governance and management requires coordination and collaboration among actors with rights and responsibilities over the heritage place.
  • Good governance principles for heritage include aspects of legitimacy and voice, shared direction, accountability, fairness and rights.
4.1.1
What is governance?

The concept of governance has grown in importance over the past two decades and is now used widely across different sectors. In the heritage context, governance can be defined as the interactions among institutional structures, processes and traditions that determine how power and responsibilities are exercised, how decisions are taken and how different actors have their say in relation to the identification, protection and management of the heritage place.

Governance The interactions among structures, processes and traditions that determine how power and responsibilities are exercised, how decisions are taken and how different actors have their say in relation to the identification, protection and management of the World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. property or the heritage place. is essentially about who decides, the instruments they use to exercise their power and responsibilities, and what processes are followed for making decisions. The term instruments refers to the set of documents and means such as legislations, policies, regulations, planning documents, customary rules and traditions, technical or legal contracts etc. that outline the different processes of how decisions are made and by whom. The three elements of actors, instruments and decision-making processes form the backbone of governance arrangements for the heritage place. Paying attention to these aspects is vital to understanding how the management system for the heritage place functions. In a practical sense, it looks at the complex relationships between actors (i.e. managers, rights-holders and stakeholders; see 4.2) and how the quality of governance affects other critical management processes, such as planning and community engagement. To ensure that governance is rights-based, pluralistic and equitable, it is necessary to analyse existing governance arrangements and consider if any improvements are needed.

Managing heritage places and ensuring their contribution to broader sustainable development requires effective collaboration between multiple actors, sectors and decision-making levels. Whenever choices and decisions are made about the protection of a heritage place, some form of governance enables – or not – people to exercise their rights, influence, authority and responsibilities over that place. Thus, who has decision-making power, who chooses what actions to implement and what processes are followed, deeply influences how a heritage place is managed.

In the case of World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. , understanding the governance arrangements takes on particular importance. The inclusion of a property on the World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. List brings additional responsibilities and greater national and international oversight and, with it, additional monitoring procedures to assess whether the Outstanding Universal Value (OUV) of the property is being maintained. Decision-making processes for the property itself – as well as its buffer zone and wider setting – become more challenging as multiple administrative levels are involved, requiring further collaboration and coordination. In addition, to ensure that the rights, obligations and responsibilities of all actors (managers, rights-holders and stakeholders) are recognized and respected, there is a need for platforms where people can have a say in informing and/or making decisions about the heritage place and how those decisions will affect them.

Clearly defined and equitable governance arrangements can help align efforts and reconcile interests in relation to the identification, protection, management and sustainable use of cultural and natural heritage.

Box 4.1 Principles of good heritage governance
  1. Recognition and respect for the rights, obligations and responsibilities of all relevant actors.
  2. Recognition and respect for all relevant actors and their knowledge, beliefs and institutions.
  3. Full and effective participation of all relevant actors in decision-making processes.
  4. Transparency supported by timely access to relevant information in appropriate forms.
  5. Accountability for fulfilling responsibilities and other actions and inactions.
  6. Access to justice, including fair and effective dispute resolution processes.
  7. Respect for human rights, including individual and collective rights, gender equity and the free, prior and informed consent of Indigenous Peoples.
  8. Ensuring benefits and costs are fairly and equitably shared among relevant actors.
  9. Effective coordination and collaboration between actors, sectors and levels.

Adapted from: Governance Assessment for Protected and Conserved Areas (2019).

4.1.2
Collaboration and coordination among actors

Achieving effective and equitable governance and management requires coordination and collaboration among actors with rights and responsibilities over the heritage place. Much more can be achieved when people work together, particularly by building stronger cross-jurisdictional partnerships that can combine resources (human, financial and technical) and explore collaborative solutions to management challenges.

Effective and equitable governance arrangements will vary according to the mandate, capacity and resources of the actors involved, as well as if and how their role and responsibilities are recognized and respected, and the availability of enabling platforms and processes. The effectiveness of coordination will depend on certain conditions, including:

  • involvement of all those with relevant roles and responsibilities and ensuring they have the required capacity;
  • mutual respect among those involved;
  • an active, sustained dialogue to achieve consensus on solutions that meet, as far as possible, the concerns and interest of everyone;
  • a learning culture that is open to new ideas and explores innovation.
REFLECTION QUESTIONS
  • What are the governance arrangements at your heritage place and who are the actors involved in the management system of your heritage place?
  • Does the management plan (or similar planning instrument) for the property include a description of the governance arrangements for the property and any existing buffer zone(s), and do these governance arrangements correspond to the guidance set out in this manual?
  • Is the governance structure – including the necessary interactions between different managers – clearly documented, transparent and accessible? Is it clear who has the main decision-making power (or final say) in relation to different management processes?
  • Have all rights-holder groups been identified? Are the rights of each group well understood? Are all rights-holder groups engaged in the management of the property, or are some excluded?
  • Are all rights-holders, managers and relevant stakeholders effectively and appropriately involved in different management processes?
  • Have rights-holders and/or local communities been involved in the identification of the values of the property, particularly at the time when the property was nominated for the World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. List? Are free, prior and informed consent processes conducted for all decisions that affect Indigenous Peoples’ lands, territories or rights?
  • Are effective dispute resolution mechanisms in place?
ADDITIONAL RESOURCES
  • Borrini, G., Dudley, N., Jaeger, T., Lassen, B., Pathak, N., Phillips, A. and Sandwith, T. (2013). Governance of Protected Areas. From understanding to action, Gland (Switzerland), IUCN The International Union for Conservation of Nature (IUCN) is an international membership association composed of both government and civil society organizations. It harnesses the experience, resources and reach of its member organizations and the input of its experts to promote nature conservation and accelerate the transition to sustainable development. The headquarters of the IUCN Secretariat are located in Gland, Switzerland.Created in 1948, IUCN has evolved into the world’s largest environmental network: IUCN experts are organized into six commissions dedicated to species survival, environmental law, protected areas, social and economic policy, ecosystem management and education and communication. .
  • UNESCO, ICCROM The International Centre for the Study of the Preservation and Restoration of Cultural Property (ICCROM) is an intergovernmental organization created to promote the conservation of all forms of cultural heritage worldwide. Its headquarters are located in Rome, Italy.Its mission is to provide Member States with the best tools, knowledge, skills and enabling environment to preserve their cultural heritage in all of its forms, for the benefit of all people. It achieves this by working with institutions and professionals on the ground, nationally and internationally along three lines of action:studying and promoting cultural heritage conservation;mobilizing and coordinating expertise to address critical issues of conservation;providing the training and research tools for implementation to strengthen the
    professional community.     , ICOMOS The International Council on Monuments and Sites (ICOMOS) is an international nongovernmental organization bringing together cultural heritage professionals from across the world. Its headquarters are located in Charenton le Pont, near Paris, France.ICOMOS was founded in 1965 after the adoption of the Venice Charter, in order to promote the doctrine and the techniques of conservation. It advises the World Heritage Committee The main decision-making body of the World Heritage Convention The Convention Concerning the Protection of the World Cultural and Natural Heritage is an international treaty adopted by the UN in 1972 that defines the kind of natural or cultural sites which can be considered for inscription on the World Heritage List for their Outstanding Universal Value for all humankind. Commonly known as the World Heritage Convention, it establishes how the international community as a whole is responsible for
    the protection of such heritage and sets out the duties of States Parties in identifying potential sites that may be eligible for inscription onto the World Heritage List and their role in protecting and preserving them. By signing the Convention, each country pledges to conserve not only the sites situated on its territory that have been recognized as being of Outstanding Universal Value, but also to protect its national heritage and to be involved in international efforts to protect, conserve and promote the heritage of humankind.         , it consists of representatives from 21 of the States Parties to the Convention elected for terms up to six years, but voluntarily reduced to 4 years to ensure equitable representation.The Committee meets at least once a year. It is one of the key implementing actors of the World Heritage Convention The Convention Concerning the Protection of the World Cultural and Natural Heritage is an international treaty adopted by the UN in 1972 that defines the kind of natural or cultural sites which can be considered for inscription on the World Heritage List for their Outstanding Universal Value for all humankind. Commonly known as the World Heritage Convention, it establishes how the international community as a whole is responsible for
    the protection of such heritage and sets out the duties of States Parties in identifying potential sites that may be eligible for inscription onto the World Heritage List and their role in protecting and preserving them. By signing the Convention, each country pledges to conserve not only the sites situated on its territory that have been recognized as being of Outstanding Universal Value, but also to protect its national heritage and to be involved in international efforts to protect, conserve and promote the heritage of humankind.         , allocates financial assistance from the World Heritage Fund A trust fund established according to article 15 of the World Heritage Convention in conformity with the provisions of the Financial Regulations of UNESCO to assist in the protection of properties forming part of the World Cultural and Natural Heritage of Outstanding Universal Value.The Fund for the Protection of the World Natural and Cultural Heritage of Outstanding Universal Value, commonly known as World Heritage Fund, consists of compulsory and voluntary contributions made by States Parties to the Convention, and any other resources authorized by the Fund’s regulations. These include resources received from UNESCO, UN organisations, public or private bodies or individuals, funds raised for the benefit of the Fund, any other source acceptable to the World Heritage Committee. The Fund may be used for purposes defined by the World Heritage Committee and may include studies, provision of expertise and skilled labour, training activities, low-interest or interest- free loans or, in exceptional cases and for special reasons of non- repayable subsidies for the protection, conservation, presentation and rehabilitation of the World Natural and Cultural Heritage. and has the final say on whether a site shall be inscribed on the World Heritage List. It examines reports on the state of conservation of inscribed sites and decides on the inscription or removal of properties on the List of World Heritage in Danger.The main functions of the Convention, in cooperation with States Parties, are to:decide, on the basis of Tentative Lists and nominations submitted by States Parties, which cultural and natural properties of Outstanding Universal Value are to be inscribed on the World Heritage List and therefore protected under the Convention;examine the state of conservation of properties inscribed on the World Heritage List through processes of Reactive Monitoring and Periodic Reporting;decide which properties inscribed on the World Heritage List are to be inscribed
    on, or removed from the List of World Heritage in Danger;decide whether a property should be deleted from the World Heritage List;define the procedure by which requests for International Assistance are to be
    considered and carry out studies and consultations as necessary before coming to a decision;determine how the resources of the World Heritage Fund A trust fund established according to article 15 of the World Heritage Convention in conformity with the provisions of the Financial Regulations of UNESCO to assist in the protection of properties forming part of the World Cultural and Natural Heritage of Outstanding Universal Value.The Fund for the Protection of the World Natural and Cultural Heritage of Outstanding Universal Value, commonly known as World Heritage Fund, consists of compulsory and voluntary contributions made by States Parties to the Convention, and any other resources authorized by the Fund’s regulations. These include resources received from UNESCO, UN organisations, public or private bodies or individuals, funds raised for the benefit of the Fund, any other source acceptable to the World Heritage Committee. The Fund may be used for purposes defined by the World Heritage Committee and may include studies, provision of expertise and skilled labour, training activities, low-interest or interest- free loans or, in exceptional cases and for special reasons of non- repayable subsidies for the protection, conservation, presentation and rehabilitation of the World Natural and Cultural Heritage. can be used most advantageously to assist States Parties in the protection of their properties of Outstanding Universal Value;seek ways to increase the World Heritage Fund A trust fund established according to article 15 of the World Heritage Convention in conformity with the provisions of the Financial Regulations of UNESCO to assist in the protection of properties forming part of the World Cultural and Natural Heritage of Outstanding Universal Value.The Fund for the Protection of the World Natural and Cultural Heritage of Outstanding Universal Value, commonly known as World Heritage Fund, consists of compulsory and voluntary contributions made by States Parties to the Convention, and any other resources authorized by the Fund’s regulations. These include resources received from UNESCO, UN organisations, public or private bodies or individuals, funds raised for the benefit of the Fund, any other source acceptable to the World Heritage Committee. The Fund may be used for purposes defined by the World Heritage Committee and may include studies, provision of expertise and skilled labour, training activities, low-interest or interest- free loans or, in exceptional cases and for special reasons of non- repayable subsidies for the protection, conservation, presentation and rehabilitation of the World Natural and Cultural Heritage. ;submit a report on its activities every two years to the General Assembly of States
    Parties and to the UNESCO General Conference;review and evaluate periodically the implementation of the Convention;revise and adopt the Operational Guidelines.     by carrying out technical evaluations of properties with cultural values proposed for inscription on the World Heritage List, as well as with comparative studies, technical assistance and reporting on the state of conservation of inscribed properties. In order to tackle the numerous facets of immovable cultural heritage and to develop the necessary scientific knowledge and methodological approaches for its protection, conservation and interpretation, ICOMOS has established scientific international committees on various cultural heritage themes and issues. The international scientific committees are ICOMOS technical bodies. As such, they undertake research, develop conservation theory, guidelines and charters, foster training for better heritage conservation, promote international exchange of scientific information and carry out common projects.     , IUCN The International Union for Conservation of Nature (IUCN) is an international membership association composed of both government and civil society organizations. It harnesses the experience, resources and reach of its member organizations and the input of its experts to promote nature conservation and accelerate the transition to sustainable development. The headquarters of the IUCN Secretariat are located in Gland, Switzerland.Created in 1948, IUCN has evolved into the world’s largest environmental network: IUCN experts are organized into six commissions dedicated to species survival, environmental law, protected areas, social and economic policy, ecosystem management and education and communication. (2023). Tool 4 Governance The interactions among structures, processes and traditions that determine how power and responsibilities are exercised, how decisions are taken and how different actors have their say in relation to the identification, protection and management of the World Heritage All inherited assets that people value for reasons beyond mere utility. Heritage is a broad concept and includes shared legacies from the natural environment, the creations of humans and the creations and interactions of humans and nature. It encompasses built, terrestrial, freshwater and marine environments, landscapes and seascapes, biodiversity, geodiversity, collections, cultural practices, knowledge, living experiences, etc. property or the heritage place. Arrangements in Enhancing Our Heritage Toolkit 2.0, pp. 46-56, Paris, UNESCO.