Identifying Major Challenges for Historic Cities

The Institute’s past collaboration with the Organization of World Heritage Cities provided it with the opportunity to discuss issues that decision-makers in historic cities are facing, as well as to exchange ideas about the experiences of municipalities on related projects. Combined with other information—such as reports presented to the World Heritage Committee by ICOMOS or the International Union for Conservation of Nature on the state of conservation of historical centers inscribed on the World Heritage list—these conversations have helped to identify major challenges in this complex field of conservation.

This research, together with an analysis of its results by a March 2009 meeting of experts (including specialists in the conservation of historic cities, urban planners, and economists) organized by the Conservation Institute, will lead to greater awareness of the needs in the field, an identification of gaps in the body of knowledge, and an understanding of how and where to best contribute to the field.

The research commenced with an examination of international charters and of the evolving concept of the preservation of historic cities and ensembles. In addition, Institute staff examined the current body of academic and professional literature, reviewed applicable case studies, and compiled a list of relevant organizations. A survey of heritage professionals and decision-makers was then undertaken on the current problems they are facing in the preservation of historic cities.

The review of significant international charters and declarations, such as the

• 1962 Charter of Venice,
• 1975 Declaration of Amsterdam,
• 1996 Istanbul Declaration on Human Settlements, and
• 2005 Vienna Memorandum,

provided a better understanding of the way in which the international conservation community approaches historic cities and urban settlements.

In general, the conceptualization of historic cities and urban settlements has progressed in the last thirty years from considering primarily the physical and tangible aspects of a historic city to including a city's intangible social, cultural, and economic values. Notably, all heritage charters stress the need for conservation to be coherently and completely integrated within a nation's or municipality's urban development plans, as well as the importance of enforcement and regulation of these plans.

In order to identify the current challenges facing the conservation of the historic urban environment, the Conservation Institute reviewed a number of case studies taken from the ICOMOS Heritage at Risk database and other sources. Although further research must be conducted before reaching definitive conclusions, this preliminary review revealed thematic similarities in the issues facing historic cities and urban settlements.

These include uncontrolled or large-scale development, abandonment of historical districts, inappropriate urban uses, discontinuity in the urban fabric, alteration of the urban landscape, and deficient management practices. Regional, environmental, socioeconomic, and cultural differences create unique situations for each place, but the issues and responses shared by historic cities supersede these variations and highlight collective challenges and effective responses to them.

Chief among the challenges are the problems caused by a lack of governmental or administrative authority over conservation activities, particularly when faced with development pressures for new construction and a dearth of financial and educational resources.

Corresponding needs include rigorous and transparent governance with well-articulated and -administered legislation and policy (at all levels of government) and interdepartmental coordination; educational programs for youths and adults; and established guidelines for urban development and the appropriate reuse of historic structures. Case studies have been particularly insightful in detailing the successes and failures of conservation efforts—or the results of the absence of such efforts.

The Institute has also conducted research into key players, institutions, and organizations active in the conservation of historic cities and urban settlements. It has identified groups of stakeholders, ranging from local NGOs to international institutions that have demonstrated experience and expertise in a specific field of work, region, or subject area pertinent to the conservation of historic cities and urban settlements, such as housing or economic development.

Between 2009 and 2012, the Conservation Institute undertook research into the role that the public, private, and third sector are increasingly playing in the conservation of cultural heritage. This desk-based research examined the available literature on this subject and culminated in the publication of a research report entitled The Role of Public-Private Partnerships and the Third Sector in Conserving Heritage Buildings, Sites and Historic Urban Areas (see Resources section).