Global Report On Culture For Sustainable Urban Development

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GLOBAL REPORT ON CULTURE FOR SUSTAINABLE URBAN DEVELOPMENT
HERITAGE AND CREATIVITY

SEP 2015
2030 AGENDA CULTURE

FOR SUSTAINABLE ENTRY POINTS
DEVELOPMENT
OCT 2015
UNESCO GLOBAL
SURVEY ON THE REGIONAL ANALYSES
ROLE OF CULTURE
STUDY AREA 3 STUDY AREA 4
STUDY AREA 1 STUDY AREA 5 STUDY AREA 7
As a new generation of cultural entrepreneurs As heritage conservation is perceived to be a
emerges, culture increasingly provides a stage low priority within development agendas, the
for community participation and renewed links needs of the poor require particular attention in
between governments and citizens. urban regeneration, building on the region’s
innovative use of pro-poor policy frameworks.
STUDY AREA 2
Although it decayed due to demographic and STUDY AREA 6
social transformations, the ‘medina’, a dense, In light of increasing land speculation and
mixed-use urban model specific to Arab cities, widespread privatization of urban areas, public
offers lessons for the future sustainability of spaces have been a particular focus of urban STUDY AREA 6
cities. conservation and regeneration efforts.

The practice of urban conservation has A new vision of sustainable urbanism is
unlocked new approaches and instruments to emerging, one that combines heritage, STUDY AREA 1
achieve urban and environmental sustainability, contemporary design and environmental STUDY AREA 8
emphasizing local knowledge, creativity and awareness, and favours polycentric, dense and
well-being. mixed-use cities.

Urban conservation and regeneration practices While urban conservation and regeneration have
are emerging through the reuse of former historically been government-led, they now involve
industrial buildings and Soviet era public spaces, a growing variety of civil society and private
as well as revitalization projects for historic cities. partners, resulting in innovative partnerships.
DEC 2015
CULTURE FOR PEOPLE ENVIRONMENT POLICIES

SUSTAINABLE CITIES THEMES
1 HUMAN-CENTRED CITIES 5 HUMAN-SCALE AND COMPACT CITIES 9 SUSTAINABLE LOCAL DEVELOPMENT
POLICY AREAS
(HANGZHOU, CHINA) 2 INCLUSIVE CITIES 6 SUSTAINABLE, RESILIENT AND GREEN CITIES 10 ENHANCED RURAL-URBAN LINKAGES
3 PEACEFUL AND TOLERANT SOCIETIES 7 INCLUSIVE PUBLIC SPACES 11 IMPROVED URBAN GOVERNANCE
4 CREATIVE AND INNOVATIVE CITIES 8 SAFEGUARDING URBAN IDENTITIES 12 FINANCING SUSTAINABLE URBAN DEVELOPMENT
OCT 2016
GLOBAL REPORT Enhance the liveability of cities and safeguard

their identities
Foster human scale and mixed-use cities by drawing
on lessons learnt from urban conservation practices
Regenerate cities and rural-urban linkages by
integrating culture at the core of urban planning
CULTURE: URBAN RECOMMENDATIONS
Ensure social inclusion in cities through Build on culture as a sustainable resource for inclusive
FUTURE culture
Promote a liveable built and natural environment
economic and social development
Enhance the quality of public spaces through culture
Promote creativity and innovation in urban Promote participatory processes through culture and
development through culture Improve urban resilience through culture-based enhance the role of communities in local governance
solutions
Build on culture for dialogue and peace-building Develop innovative and sustainable financial models
initiatives for culture
NEW URBAN AGENDA
Global Report_UK second edition.qxp_Mise en page 1 13/01/2017 20:05 Page1
URBAN
N
FUTURE
GLOBAL REPORT
on CULTURE
for SUSTAINABLE
URBAN
DEVELOPMENT

Published in 2016 by the United Nations Educational, Scientific and Cultural Organization,
7, place de Fontenoy, 75352 Paris 07 SP, France
© UNESCO 2016
ISBN 978-92-3-100170-3
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opinion whatsoever on the part of UNESCO concerning the legal status of any country, territory, city or area or of its authorities,
or concerning the delimitation of its frontiers or boundaries.
The ideas and opinions expressed in this publication are those of the authors; they are not necessarily those of UNESCO and
do not commit the Organization.
(*) Images marked with an asterisk do not fall under the CC-BY-SA licence and may not be used or reproduced without the prior
permission of the copyright holders.
Cover and back cover photo: Women dancing at the Shirvanshah Palace, Baku (Azerbaijan) © REZA/Webistan*
Graphic design & cover design: Grace Hodeir/RectoVerso, 92200 Neuilly-sur-Seine (France)
Printed by UNESCO, Paris (France)
This publication was supported by the Kingdom of Spain and the Hangzhou Municipal People’s Government.
This work is dedicated to the memory of Ron van Oers (1965-2015),

a friend and colleague, who pioneered the urban conservation approach
reflected in the UNESCO Recommendation on the Historic Urban Landscape.
3
FOREWORd
With over half of the world’s population now living in urban

© UNESCO/Michel Ravassard
areas, the road to sustainable development passes through

cities in every corner of the globe. As the United Nations
works to implement the 2030 Agenda for Sustainable
Development and the New Urban Agenda, to be adopted at
the Third United Nations Conference on Housing and Sustainable Urban Development (Habitat III) in October 2016,
it is critical to bring together the best policies to make the most of our cities.
The challenges we face are steep and cities are on the frontlines of sustainable development issues such as education,
food security, water management, the development of inclusive societies, and effective institutions. Yet cities are also
one of humanity’s most brilliant inventions for crafting solutions for the future. Fundamentally, cities bring creative
and productive people together, helping them to do what they do best: exchange, create and innovate. From the ancient
cities of Mesopotamia to the city-states of the Italian Renaissance and the vibrant metropolises of today, urban areas
have been among the most powerful engines of human development. Today, we must once again place our hope in cities.
Culture lies at the heart of urban renewal and innovation. This Report provides a wealth of insights and concrete
evidence showing the power of culture as a strategic asset for creating cities that are more inclusive, creative and
sustainable. Creativity and cultural diversity have been the key drivers of urban success. Cultural activities can foster
social inclusion and dialogue among diverse communities. Tangible and intangible heritage are integral parts of a city’s
identity, creating a sense of belonging and cohesion. Culture embodies the soul of a city, allowing it to progress and
build a future of dignity for all. This reflection has been at the core of UNESCO’s work over the last decades, notably
through the development of programmes such as the Creative Cities Network, the Learning and Smart Cities initiatives
and the protection of historic urban landscapes. This vision has received new energy with the explicit recognition of
the role of culture as an enabler of sustainable development, and as one of the key conditions to achieve Sustainable
Development Goal 11 to ‘Make cities and human settlements inclusive, safe, resilient and sustainable’.
A human-centred city is a culture-centred space. We must translate this reality into more effective policies and
sustainable urban governance. Cities have become living laboratories for determining how some of the most pressing
challenges we face are negotiated, managed and experienced. We must strengthen the cultural assets of cities, the
heritage that provides a sense of meaning and identity to their inhabitants, and the creative opportunities that enhance
the vitality, liveability and prosperity of our cities.
This Report would not be possible without the contributions of a number of key partners of UNESCO. In this regard,
I particularly wish to thank the Government of the Kingdom of Spain and the Hangzhou Municipal People’s
Government, whose support for UNESCO’s work in the field of culture and sustainable urban development has been
instrumental in bringing this publication to fruition.
Irina Bokova
Director-General of UNESCO
5
PREFACE
© Ministry of Foreign Affairs and Cooperation (MAEC) of the Kingdom of Spain*
2007 represented a landmark moment for our planet, as it

was the first time in history that the inhabitants of urban
areas outnumbered those of rural settlements. Today,
approximately 55% of the global population lives in cities. We are faced with the demographic reality that an estimated
two out of three people will live in urban areas by 2050.
While in 1990 there were 10 megacities with more than 10 million inhabitants each, at present they total 28, and in
2030 there will be more than 40 cities of such a scale. This unprecedented urban growth implies that cities will play
a vital role in the development of comprehensive solutions to future challenges, solutions that will need to integrate
the transversal value of culture in processes such as urban regeneration, social inclusion and economic prosperity.
Given the importance that Spain attaches to the role of culture for sustainable development, the Spanish Government
has maintained a long-lasting relationship with UNESCO, which demonstrates its unwavering commitment to
safeguarding cultural heritage and promoting creativity and cultural diversity. In 2007, the MDG Achievement Fund
(MDG-F) was created through an agreement between the Government of Spain and UNDP, as a representative of the
United Nations system. The MDG-F conducted 130 programmes in 50 countries across the 5 continents, many of
which were concentrated in urban areas. Building on the Millenium Development Goals, the 2030 Agenda for
Sustainable Development was adopted in September 2015, thanks to the efforts of all countries in facilitating the
process which led to its adoption. Goal 11 of this Agenda establishes the challenge of ‘Making cities and human
settlements inclusive, safe, resilient and sustainable’.
The future of our societies will increasingly be decided in cities, in a context where it is no longer possible to imagine
sustainable development without culture. This is the reason why Spain has been integrating culture into its Master
Plans for Cooperation, as an essential element of development policies. The current IV Master Plan (2013-2016)
emphasizes this need, stipulating that ‘Spanish cooperation, building on the legacy of its Strategy for Culture and
Development and the work of embassies and cooperation units abroad, particularly cultural centres, will promote
respect for cultural diversity, intercultural dialogue and freedom of expression and creation, as well as the effective
participation of all people in cultural life’.
It is our intention that this report becomes a key publication, which will provide a framework to effectively implement
the 2030 Agenda and the New Urban Agenda to be adopted at Habitat III in Quito, with the ultimate goal of managing
the changes threatening our planet and building a sustainable future for generations to come.
Jesús Manuel Gracia Aldaz

Secretary of State for International Cooperation
and for Ibero-America, Kingdom of Spain
6
PREFACE
The city of Hangzhou is honoured to present this preface

© Li Zhong
to the UNESCO Global Report on Culture for Sustainable

Urban Development, which represents the culmination of
years of cooperation between Hangzhou and UNESCO to highlight the vital importance of culture for sustainable
urban development.
As the fifth largest city in China, Hangzhou has witnessed this dynamic first-hand. Long a centre of arts and learning,
in the ninth century Hangzhou became a Mecca for poets, artists and scholars, who saw in the pagodas and gardens
of the city’s stunning West Lake a perfect marriage between humankind and nature. Inscribed on the UNESCO
World Heritage List in 2011, the West Lake has proved to be a crucial source of cultural heritage and sustainable
tourism for the city.
Now home to a metropolitan population of over 9 million people, Hangzhou is facing challenges common to all
rapidly growing cities around the world, including expanding access to jobs, education and housing, as well as
mitigating the effects of climate change and urban sprawl. The city of Hangzhou is convinced that culture is the
key to solving the challenges of this distinctly urban century, which will see the world’s urban population grow to
9 billion people by 2100. Indeed, as an important partner of UNESCO, the city of Hangzhou has contributed greatly
to efforts to integrate culture into all aspects of sustainable development.
This partnership goes back to 2013, when Hangzhou played host to the UNESCO International Congress ‘Culture:
Key to Sustainable Development’, the first international congress on the linkages between culture and sustainable
development organized by UNESCO since 1998. Two years later, in September 2015, these efforts bore fruit with
the adoption of the 2030 Agenda for Sustainable Development by the United Nations General Assembly, which
recognized culture as a key driver and enabler of sustainable development. This was especially highlighted in
Sustainable Development Goal 11, to ‘Make cities inclusive, safe, resilient and sustainable’. In this light, UNESCO
organized an International Conference on ‘Culture for Sustainable Cities’ in December 2015, which the city of
Hangzhou was honoured to host. The conference resulted in the Hangzhou Outcomes, each of which has served to
inspire the themes found in this report.
It is our hope that Culture: Urban Future will serve as an important starting point for the implementation of the
New Urban Agenda, launching a wider discussion on the role of culture for sustainable development. It is a
discussion that the city of Hangzhou will continue to be a part of, as our history shows that culture is indeed an
essential precondition for the creation of sustainable cities.
Zhang Hongming
Mayor of Hangzhou
7
ACKNOWLEdGEMENTS
This Global Report would not have been possible without the contribution of many people. The Culture Sector
of UNESCO would like to acknowledge their support and thank all contributors for their time and effort.
Our gratitude goes to our donors, whose financial support made the elaboration of the Global Report possible.
We would like to thank the Government of Spain and the Spanish Agency for International development
Cooperation (AECId), in particular, Itziar Taboada, director of Cultural and Scientific Relations, and Laura
López de Cerain and Cristina Juarranz, the former and current directors of Multilateral, Horizontal and
Financial Cooperation, respectively. Furthermore, we wish to thank the Hangzhou Municipal People’s
Government, and particularly Zhao Yide, Member of the Standing Committee of the Communist Party of China
Zhejiang Provincial Committee and Secretary of the Hangzhou Municipal Party Committee, and Zhang
Hongming, Mayor of Hangzhou.
The Global Report is the result of a reflection led by Francesco Bandarin, Assistant director-General for
Culture of UNESCO, who directed the research activities, the exchanges, the international preparatory
conference and the Global Report Team comprising Lynne Patchett, dorine dubois, Alessandra Borchi,
Emmanuelle Robert, Penelope Keenan, Sara García de Ugarte, Marissa Potasiak and Salma Zulfiqar.
The Report includes contributions from the following international organizations, whom we wish to thank: the
Council of Europe, ICCROM (International Centre for the Study of the Preservation and Restoration of
Cultural Property), the International Council on Monuments and Sites (ICOMOS), the International Union for
Conservation of Nature (IUCN), the Organization of World Heritage Cities (OWHC), United Cities and Local
Governments (UCLG), and the World Bank.
We are grateful to the institutions, researchers, professionals or individual experts, from various countries
and areas of expertise, who joined with UNESCO in the implementation of the regional studies presented in
Part I of the present Report.
For study area 1, under the coordination of Arterial Network (Cape Town, South Africa), the study team
involved: Peter Rorvik, Nadia Nkwaya and Musonda Chimba from the Continental Secretary of Arterial
Network, Jenny Fatou Mbaye, Yarri Kamara, Laura Nkula-Wenz, Rike Sitas, deirdre Prins Solani, Franck Komlan
Ogou, Victoria Okoye, Aida Muluneh, Tesfaye Yimer, Abdul Aziz Abed and Mikhaela Sack from Albonico Sack
Metacity architects and urban designers, Ore disu and Tamilore Oni from the Nsibidi Institute, Aly Sine,
Muhammad Juma, Attaher Maiga, Tojo Rakotomalala, Muhammad Juma and El Boukhari Ben Essayouti.
For study area 2, under the coordination of the Arab League’s Educational, Scientific and Cultural Organization
(Tunis, Tunisia), the study team involved: Hayet Guettat Guermazi, Jellal Abdelkafi, Faïka Bejaoui, Abderrahim
Kassou, Mohamed Abdelhalim Faidi, Kareem Ibrahim, Fakher Kharrat, Naima Lahbil Tagemouati, Caecilia Pieri,
daniele Pini, Mousbah Rajab, Simone Ricca and Zahra Ali Baba.
For study area 3, under the coordination of the University IUAV of Venice (Venice, Italy), the study team
involved: Enrico Fontanari, Roberto Zancan, Giorgia Aquilar, Micol Roversi Monaco, Jana Revedin, Jean Louis
Luxen, Sinisa Sesum, Amir Pašic, Senada demirovic, Rut Carek, daniel Perogordo, Lijia Kokkonen, Hilde Leon,
Kerstin Manz, Thymio Papayannis, Tamas Fejerdy, Mike Turner, dagnija Baltiņa, Bruno deslandes, Ina
Marčiulionytė, Ray Bondin, Ana Pereira Roders, Kris Endresen, Marius Gronning, Cecile Smith-Christensen,
Bogusław Szmygin, Cristina Castel Branco, Cristina Iamandi, Francisco Pol Mendez, Paolo Perulli, Yonca
Kosebay Erkan, Adam Wilkinson and Erminia Sciacchitano.
For study area 4, under the coordination of the Strelka Institute for Media, Architecture and design (Moscow,
Russian Federation), the study team involved: Elizaveta Levitskaya, Anastasia Iluhina, Maria Sakirko, Nadezhda
Khort, Sofia Savelieva, Alexei Muratov, Clementine Cecil, Thomas Clark, Julia Popova, Kirill Ilnitskiy, Anna
Pozniak, Eugeniy Martynenko, daria Elmanova, Varvara Melnikova and denis Leontiev.
8
For study area 5, under the coordination of the Srishti Institute of Art, design and Technology (Bangalore, India),
in collaboration with Sustainable Urbanism International, the study team involved: Jyoti Hosagrahar, Amit
Chanchal, Anisha Arabolu and Uditi Agarwal.
For study area 6, under the coordination of the World Heritage Institute of Training and Research for the Asia
and the Pacific Region (Shanghai, China), the study team involved: Zhou Jian, Ron van Oers, Sabina Cioboata, Luo
Xi, Yao Yifeng, Cristina Iamandi, Susan Fayad, Punto Wijayanto, Ester van Steekelenburg, Su Su, Toe Aung, Sachiko
Haraguchi, Belinda Yuen, Felipe delmont and Shao Yong.
For study area 7, under the coordination of the School of Restoration Arts at Willowbank (Queenston,
Canada), the study team involved: Julian Smith, Angela Garvey, david deo, Erica Avrami and Jeffrey L. Soule.
For study area 8, under the coordination of the Pontifical Catholic University of Chile (Santiago, Chile), with
the contribution of the University of Coimbra (Coimbra, Portugal), the study team involved: Fernando Pérez
Oyarzún, Walter Rossa, Lorena Pérez Leighton, Carolina Valdés Rojas, Miguel delso Páez, Matias Puelma,
Paula Mulatti, Javiera Quiroga, Camila Mancilla, Camila Martorell, Andréa Sampaio and Marcela Santana.
The Report benefited from the advice provided by the following external reviewers: Paolo Ceccarelli,
Michael Cohen and Susan Fayad.
Several UNESCO staff and external experts offered advice on the draft or contributed to the activities, which
led to the production of the Report. For their input and support we thank: Nada Al Hassan, Nada Al-Nashif,
denise Bax, Maria Bennici, Leontien Bielen, Giovanni Boccardi, Anne Candau, Arne Carlsen, Melika Caucino-
Medici, danielle Cliche, Lindsay Cotton, Thomas Croll-Knight, Timothy Curtis, Michelle diederichs,
Peter dogse, Golda El-Khoury, Margherita Fanchiotti, Laura Frank, Liza Gisbert, Francisco Gómez durán,
Matthieu Guevel, Himalchuli Gurung, Karim Hendili, Jyoti Hosagrahar, Huang Hua, Feng Jing, Anthony Krause,
Jean-Yves Le Saux, Paola Leoncini Bartoli, Ismael Madrigal, Alexandros Makarigakis, Kerstin Manz, Franca
Miglioli, Edmond Moukala, Julien Nakata-Glenat, Marielza Oliveira, Ingrid Pastor Reyes, Irina Pavlova, Frank
Proschan, Maritza Rolón, Mechtild Rössler, Saadia Sánchez Vegas, Alcira Sandoval Ruiz, Nuria Sanz,
Flavia Schlegel, Qian Tang, Linda Tinio, Jair Torres, Marie-Noël Tournoux, Raúl Valdés Cotera, Lily Valtchanova,
Vesna Vujicic-Lugassy, Mo Wang, Soichiro Yasukawa and Wu Zhong.
A special thanks goes to Alfredo Pérez de Armiñán, former Assistant director-General for Culture of UNESCO,
who supported the preparation of this Report and provided guidance to the development of the overall
initiative.
We wish to thank Reza deghati, who provided his work to illustrate the Report, and Rachel deghati and Laetitia
Barth from the Webistan photo agency. We also wish to thank all the artists, professionals and photographers
who kindly agreed to grant rights for the reproduction of work, including Anton Bolkunov, danni Colgan,
Jean-Jacques Gelbart, Tony Lewis, Victoria Okoye, Nicola Prime and Gilles Waluzinski.
Finally, special thanks go to Grace Hodeir and the team at Recto Verso, to whom we owe the design and layout
of the Report, as well as Julie Wickenden, who ensured the copy-editing and proofreading of the Report.
Many colleagues within and outside UNESCO were involved in the translation and production of the Report
and we would like to thank them all.
9
CONTENTS
Foreword by Irina Bokova, director-General of the United Nations Educational,
Scientific and Cultural Organization (UNESCO) 5
Preface by Jesús Manuel Gracia Aldaz, Secretary of State for International Cooperation
and for Ibero-America, Kingdom of Spain 6
Preface by Zhang Hongming, Mayor of Hangzhou 7
Acknowledgements 8
Contents 10
List of case studies 12
List of perspectives 14
List of boxes 15
Introduction – Culture: key resource for sustainable urban development 17
PART I Global survey on the role of culture for

sustainable urban development
27
STUdy area 1 Angola, Benin, Botswana, Burkina Faso, Burundi, Cabo Verde, Cameroon, Central African Republic, Chad, Comoros,
Congo, Côte d’Ivoire, Democratic Republic of the Congo, Djibouti, Equatorial Guinea, Eritrea, Ethiopia, Gabon,
31
Gambia, Ghana, Guinea, Guinea-Bissau, Kenya, Lesotho, Liberia, Madagascar, Malawi, Mali, Mauritius, Mozambique,
Namibia, Niger, Nigeria, Rwanda, Sao Tomé and Principe, Senegal, Seychelles, Sierra Leone, Somalia, South Africa,
South Sudan, Swaziland, Togo, Uganda, United Republic of Tanzania, Zambia, Zimbabwe
STUdy area 2 Algeria, Bahrain, Egypt, Iraq, Jordan, Kuwait, Lebanon, Libya, Mauritania, Morocco, Oman, Palestine, Qatar,
Saudi Arabia, Sudan, Syrian Arab Republic, Tunisia, United Arab Emirates, Yemen
43
STUdy area 3
55
Albania, Andorra, Austria, Belgium, Bosnia and Herzegovina, Bulgaria, Croatia, Cyprus, Czech Republic, Denmark,
Estonia, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Latvia, Liechtenstein, Lithuania,
Luxembourg, Malta, Monaco, Montenegro, Netherlands, Norway, Poland, Portugal, Republic of Moldova, Romania,
San Marino, Serbia, Slovakia, Slovenia, Spain, Sweden, Switzerland, The former Yugoslav Republic of Macedonia,
Turkey, United Kingdom of Great Britain and Northern Ireland
STUdy area 4 Armenia, Azerbaijan, Belarus, Georgia, Kazakhstan, Kyrgyzstan, Russian Federation, Tajikistan, Turkmenistan,
Ukraine, Uzbekistan
67
STUdy area 5
79
Afghanistan, Bangladesh, Bhutan, India, Iran (Islamic Republic of), Maldives, Nepal, Pakistan, Sri Lanka
STUdy area 6
91
Australia, Brunei Darussalam, Cambodia, China, Cook Islands, Democratic People’s Republic of Korea, Fiji, Indonesia,
Japan, Kiribati, Lao People’s Democratic Republic, Malaysia, Marshall Islands, Micronesia (Federated States of),
Mongolia, Myanmar, Nauru, New Zealand, Niue, Palau, Papua New Guinea, Philippines, Republic of Korea, Samoa,
Singapore, Solomon Islands, Thailand, Timor-Leste, Tonga, Tuvalu, Vanuatu, Viet Nam)
STUdy area 7 Canada, United States of America

103
STUdy area 8
113
Antigua and Barbuda, Argentina, Bahamas, Barbados, Belize, Bolivia (Plurinational State of), Brazil, Chile, Colombia,
Costa Rica, Cuba, Dominica, Dominican Republic, Ecuador, El Salvador, Grenada, Guatemala, Guyana, Haiti,
Honduras, Jamaica, Mexico, Nicaragua, Panama, Paraguay, Peru, Saint Kitts and Nevis, Saint Lucia, Saint Vincent
and the Grenadines, Suriname, Trinidad and Tobago, Uruguay, Venezuela (Bolivarian Republic of)
10
PART II Culture for sustainable cities:

a thematic approach
125
SECTION A
PEOPLE Building on the power of culture to promote human and inclusive cities 129
1 HUMAN-CENTRED CITIES 132
2 INCLUSIVE CITIES 140
3 PEACEFUL AND TOLERANT SOCIETIES 148
4 CREATIVE AND INNOVATIVE CITIES 156
SECTION B
ENVIRONMENT Improving the quality of the built and natural environment through culture 165
5 HUMAN SCALE AND COMPACT CITIES 168
6 SUSTAINABLE, RESILIENT AND GREEN CITIES 176
7 INCLUSIVE PUBLIC SPACES 184
8 SAFEGUARDING URBAN IDENTITIES 192
SECTION C
POLICIES Integrating culture in urban policies to foster sustainable urban development 201
9 SUSTAINABLE LOCAL DEVELOPMENT 204
10 ENHANCED RURAL-URBAN LINKAGES 212
11 IMPROVED URBAN GOVERNANCE 220
12 FINANCING SUSTAINABLE URBAN DEVELOPMENT 228
CONCLUSIONS AND RECOMMENDATIONS

Culture for transformative change in cities 237
DOSSIERS UNeSCO’s networks for sustainable urban development 247

1. UNeSCO’s Strategic Partnerships for Cities 248
2. World Heritage and Cities 253
3. The UNeSCO Creative Cities Network (UCCN) 256
4. The International Coalition of Inclusive and Sustainable Cities – ICCar 259
5. The UNeSCO Global Network of Learning Cities (GNLC) 262
6. The UNeSCO Man and the Biosphere (MaB) Programme for Sustainable Cities 265
7. disaster risk reduction for Sustainable Urban development 267
8. Water and Sustainable Cities 269
ATLAS 273
Abbreviations 296
References 299
11
LIST OF CASE STUdIES

1. Lamu (Kenya) 19. Graz (Austria) 38. New Orleans (United States of America)
The role of civil society in mitigating the social Municipal staff training in cultural diversity Vietnamese Americans in New Orleans East:
and cultural impacts of planned transportation management countering environmental disasters through
infrastructure farming
20. Almaty (Kazakhstan)
2. Island of Mozambique (Mozambique) Community-led initiatives support creativity 39. Seattle (United States of America)
and Djenné (Mali) Leveraging cultural diversity for social justice
Meeting the need for housing while 21. Samara (Russian Federation)
preserving the urban landscape Revitalizing the historic core and encouraging 40. The Main Street Program: urban
community ownership of the city regeneration in small towns (United
3. Cape Town (South Africa) States of America and Canada)
Unravelling the legacy of apartheid through 22. Dilijan (Armenia)
culture-led development Revitalizing a former Soviet cultural capital 41. Los Angeles (United States of America)
Rejuvenating inner-city Los Angeles through
4. Segou (Mali) 23. Mary (Turkmenistan) adaptive reuse
An innovative entrepreneurial model for In the face of modern challenges, an ancient Silk
culture-based urban regeneration Road city invests in its future through culture 42. Historic areas pioneering ecological
urbanism (United States of America and
5. Accra (Ghana) 24. Kandy (Sri Lanka) Canada)
A self-organized street festival changes the Protecting the cultural values of a sacred site
image of the city’s slums within a rapidly developing urban area 43. Toronto (Canada)
Non-profit and community-led regeneration
6. Zanzibar (United Republic of Tanzania) 25. Bhaktapur (Nepal) efforts
Bridging spatial and social divisions through Post-disaster recovery of Nepal’s cultural
inclusive planning heritage 44. Montreal (Canada)
Building on design and creativity to stimulate
7. Hometown associations (Cameroon) 26. Isfahan (Islamic Republic of Iran) urban regeneration through collaborative
Linking rural and urban communities for A centuries-old model of urban planning planning
culture and development adapts to the challenges of contemporary
urbanization 45. Rio de Janeiro (Brazil)
8. Fez (Morocco) Recognizing the favelas as engines of
Crafts bring a vital breath of air to the 27. Muziris (India) creativity and innovation
struggling medina Urban regeneration as a catalyst for creativity
in the ancient seaport 46. Protecting mud construction in Chile:
9. Urban workshops: places for urban comprehensive preventive instruments
innovation in the Maghreb 28. The Heritage City Development and
Augmentation Yojana (HRIDAY) (India): 47. Port-au-Prince (Haiti)
10. The local development corporations: an towards integrated urban regeneration Reclaiming public space through culture
innovative form of local governance in Indian historic cities
(Morocco) 48. Santiago (Chile)
29. Bamiyan (Afghanistan) The local community leads the city’s heritage
11. Cairo (Egypt) Reconciling heritage preservation and conservation
Claims of the emergence of a ‘right to community needs in urban development and
heritage’ management 49. Buenos Aires (Argentina)
Design as an engine of social and economic
12. Jeddah (Saudi Arabia) 30. Rawalpindi (Pakistan) development.
A public-private partnership to revitalize the Incorporating the Historic Urban Landscape
historic city approach in the planning agenda 50. Lima (Peru)
Echoes of the Andes: music in migrant
13. Tunis (Tunisia) 31. Pro-poor frameworks: examples from communities
A social habitat project in the medina: the India and Bangladesh
regeneration of the oukalas 51. Upgrading housing in historical areas:
32. Jaipur and Jodhpur (India) innovative examples from across the
14. Coimbra (Portugal) Prosperity through training in cultural region
A new vision for a historic city management
52. Luang Prabang (Lao People’s
15. Oslo (Norway) 33. Manila (Philippines) Democratic Republic)
Reconnecting the city with its natural The Intramuros Restoration and Development Mixed-use public spaces as common assets
environment while revisiting its urban Project: a long-term urban endeavour
heritage 53. Kigali (Rwanda)
34. Hanoi (Viet Nam) The power of culture for reconciliation
16. Çair (The former Yugoslav Republic of Reinforcing a tradition of community,
Macedonia) neighbourliness and trust in the Ancient 54. Baku (Azerbaijan)
Promoting respect for human rights through Quarter Recognizing women’s contribution to the art
theatre of Azeri carpet-making
35. George Town (Malaysia)
17. Hamburg (Germany) Heritage as a rallying point for community 55. Nablus (Palestine)
Building on a trading past for waterfront action Reconnecting local communities to culture
regeneration through adaptive reuse
36. Hangzhou (China)
18. Edinburgh (United Kingdom of Great Building sustainable urban conservation 56. Strasbourg (France)
Britain and Northern Ireland) strategies in a major tourism hub Cars or people?
Diverse interests and actors working together
for urban regeneration 37. Shanghai (China) 57. Durban (South Africa)
Contrasted scenarios of gentrification within Targeting discrimination and empowering
historic areas marginalized groups
12
58. Santiago de Compostela (Spain) 76. Mumbai (India) 95. Seville (Spain)
Balancing tourism carrying capacity with Community participation contributes to a Strengthening intercultural dialogue and
residential regeneration in historic city centres vibrant arts district community participation in urban
regeneration
59. Vancouver (Canada) 77. Khorog (Tajikistan)
A contemporary cityscape with cultural Sustainability through civil society 96. Kolomna (Russian Federation)
diversity as a defining feature participation and governance: the Revitalizing the knowledge and skills of
regeneration of Khorog Park traditional practices for local development
60. Montevideo (Uruguay)
Candombe: the drumbeat of cultural 78. Christchurch (New Zealand) 97. Suzhou (China)
inclusiveness Heritage and cultural revitalization in post- Reviving textile traditions for development in
earthquake recovery rural villages
61. Malmö (Sweden)
Local solutions for promoting tolerance in 79. Samarkand (Uzbekistan) 98. Rakhi Shahpur and Rakhi Khas (India)
host communities The key role of local communities in Re-use of traditional structures for sustainable
sustainable heritage management rural development
62. Timbuktu (Mali)
Community-led efforts revive a city’s cultural 80. New Orleans (United States of America) 99. Cotogchoa (Ecuador)
foundations Rebuilding New Orleans after Hurricane Combatting uncontrolled peri-urbanization
Katrina and strengthening local cultural resources
63. Baghdad (Iraq)
Fragile cities and the human cost of war 81. Copenhagen (Denmark) 100. Dili (Timor-Leste)
Peddling green growth Population growth: a key policy issue for
64. Mostar (Bosnia and Herzegovina) small urban settlements
Rebuilding Mostar Bridge: a symbol of 82. Dakar (Senegal)
reunification A youth-led outlook for the urban fabric 101. Durban and Johannesburg (South Africa)
Singing the migrant experience: Isicathamiya
65. Medellín (Colombia) 83. Valparaiso (Chile) music in South Africa
Increasing access to culture as a gateway to From reclusion to inclusion: adaptive reuse
social cohesion and inclusion fosters creativity 102. Coffee Cultural Landscape (Colombia)
Cultivating territorial development through
66. Cape Town (South Africa) 84. Marrakesh (Morocco) heritage
Spaces of memory, reconciliation and citizen Intangible cultural heritage as urban public
engagement space, but for whom? 103. Bangkok (Thailand)
Heritage as an asset for community
67. Nairobi (Kenya) 85. Paris (France) development and self-governance
Mapping the informal public transport system Investing in public spaces and reclaiming the
riverfront 104. Bologna (Italy)
68. UNESCO/UNITAR A decentralized model of governance
Employing digital imaging tools for the 86. Maputo (Mozambique)
protection and preservation of cultural Transforming contested spaces through 105. Kyoto (Japan)
heritage culture Optimizing urban policies for culture
69. Shanghai (China) 87. Ballarat (Australia) 106. Riga (Latvia)

Banking on creative infrastructure to stimulate Towards integrated and comprehensive Harnessing multi-level cooperation to
urban growth conservation strategies strengthen cultural identity
70. São Paulo and Curitiba (Brazil) 88. Salvador da Bahia (Brazil) 107. Istanbul (Turkey)
A platform for citizen-to-government The risk of cultural tourism Navigating the urban policy and legislative
engagement in Brazil landscape
89. Macao (China)
71. Dubai (United Arab Emirates) Heritage and the wager of commercial 108. Quito (Ecuador)
Building a virtual community to share gentrification Employing diverse financing strategies to
creativity restore historic cities
90. Cuzco (Peru)
72. Ouro Preto (Brazil) Bolstering community identity through 109. Lagos (Nigeria)
Peripheries at the margins of conservation cultural programmes Leveraging public-private partnerships for
efforts cultural sustainability
91. Vigan (Philippines)
73. Prague (Czech Republic) Engaging local communities in heritage 110. Hoi An (Viet Nam)
Transitioning towards a polycentric city safeguarding Reinvesting economic dividends to support
heritage conservation
74. Johannesburg (South Africa) 92. Pekalongan (Indonesia)
Placing culture at the core of post-apartheid Craftsmanship as an honourable occupation 111. Delhi (India)
urban development Public-private partnership drives heritage
93. Guatemala City (Guatemala) revitalization
75. Rome (Italy) Broadening creative horizons for youth
Mixed-use cities through audiovisual training
94. Saint-Louis (Senegal)

Generating economic benefit through
conservation efforts
13
LIST OF PERSPECTIVES
1. Urban concepts and cultural heritage: 16. The growth of super-diverse cities 31. Music as a vital player in urban
issues and challenges of sustainability in Steven Vertovec, Director, Max Planck Institute development
developing African countries for the Study of Religious and Ethnic Diversity, Megan Hender, Deputy Lord Mayor, Adelaide
Hamady Bocoum, Director General, Musée des and University of Göttingen (Germany) (Australia)
civilisations noires, Dakar (Senegal)
17. Culture as a tool for promoting inclusive 32. The view from ICOMOS
2. UNESCO experiences in safeguarding and socially-cohesive cities Gustavo Araoz, President, International Council
World Heritage cities in the Arab Region Gabriella Battaini-Dragoni, Deputy Secretary on Monuments and Sites (ICOMOS)
Mounir Bouchenaki, Director, Arab Regional General, Council of Europe
Centre for World Heritage (Bahrain) 33. ICCROM and sustainable urban
18. Leveraging cultural diversity for development: capacity-building for
3. Promoting a reciprocal relationship sustainable urban development integrated approaches to conservation
between cultural heritage and tourism Alexandra Arce Plúas, Mayor, Durán (Ecuador) Stefano De Caro, Director-General, ICCROM
HRH Prince Sultan Bin Salman Bin Abdulaziz Al (International Centre for the Study of the
Saud, Chairman of the Board of Directors and 19. Sydney’s Chinatown in the twenty-first Preservation and Restoration of Cultural
President of the Saudi Commission for Tourism century Property)
and National Heritage (Kingdom of Saudi Arabia) Ien Ang, Institute for Culture and Society,
University of Western Sydney (Australia) 34. Getty outlook on the future of urban
4. The power of the past heritage
Ismaïl Serageldin, Director, Library of 20. Cultural heritage and post-conflict Susan Macdonald, Getty Conservation
Alexandria (Egypt) sustainable development Institute, The J. Paul Getty Trust (United States
Marie Louise Stig Sørensen, University of of America)
5. A multi-level approach to fostering a Cambridge (United Kingdom of Great Britain
tourist-friendly, creative city and Northern Ireland) 35. Urban culture and sustainable
Péter Szegvári, Senior Advisor to the Lord development
Mayor, Budapest (Hungary) 21. Urban violence and the challenges to Jean-Louis Cohen, Institute of Fine Arts, New
historic preservation: can constraints York University (United States of America), and
6. Leveraging mining heritage to build a become opportunities? Collège de France, Paris (France)
new model of urban development Diane E. Davis, Harvard Graduate School of
Jean-François Caron, Mayor, Loos-en-Gohelle Design (United States of America) 36. Culture as a resource for sustaining
(France) urban life and livelihoods
22. Focusing on film for urban development Jenny F. Mbaye, Centre for Culture and the
7. A literary city moves towards Paulo Alexandre Barbosa, Mayor, Santos Creative Industries, City University of London
sustainability (Brazil) (United Kingdom of Great Britain and Northern
Andriy Sadovyi, Mayor, Lviv (Ukraine) Ireland)
23. Bringing ‘beauty’ to cities
8. Working with international partners to Renzo Piano, architect and Pritzker Architecture 37. A multidimensional view of heritage as a
boost the potential of a UNESCO Creative Prize laureate 1998 factor of sustainable urban development
City Sofia Avgerinou Kolonias, National Technical
Olga Mezina, Deputy Head, Ulyanovsk City 24. Untangling the shifting relationship University of Athens (N.T.U.A.) (Greece),
Administration (Russian Federation) between culture and urban planning President ICOMOS International Committee on
Milica Bajic Brkovic, President 2012-2015, Historic Towns and Villages (CIVVIH) and
9. Anchoring the redevelopment of the International Society of City and Regional ICOMOS Board Member
Tokyo Bay area in culture Planners (ISOCARP)
Hidenobu Jinnai, Hosei University (Japan) 38. Creative placemaking as urban policy
25. Towards future cities Randall Mason, University of Pennsylvania
10. Fostering talent and creativity for Leon Krier, architect-urbanist, inaugural R.H. (United States of America)
sustainability Driehaus Architecture Prize laureate 2003
Cho Byung-don, Mayor, Icheon (Republic of 39. Action for culture in the New Urban
Korea) 26. Nature can help build better towns and Agenda
cities Yves Dauge, President, Association of French
11. Culture for a more sustainable city Inger Andersen, Director General, International World Heritage Sites and President,
Government of Mexico City (Mexico) Union for Conservation of Nature (IUCN) Association of Cultural Encounter Centres
(France)
12. A centre of gastronomy continues to 27. Resilient World Heritage Cities and their
innovate communities 40. Connecting urban development to nature
César Souza Junior, Mayor, Florianópolis Denis Ricard, Secretary General, Organization Wang Shu, architect and Pritzker Architecture
(Brazil) of World Heritage Cities (OWHC) Prize laureate 2012
Elizenia Prado Becker, Municipal Secretary of
Tourism, Florianópolis (Brazil) 28. Cutting carbon emissions from the 41. Two cities, one vision
heritage building stock Bonnie Burnham, President Emerita, World
13. People-centred heritage conservation in Anthony Gad Bigio, George Washington Monuments Fund
Beijing University (United States of America)
Zhang Bing, China Academy of Urban Planning 42. Committing to culture in city policies
and Design (China) 29. Urban development and public spaces: Xu Qin, Mayor, Shenzhen (China)
economics and culture
14. Rio de Janeiro’s revitalized centre and its Naima Lahbil Tagemouati, cultural 43. Renovating historic dwellings in a World
port: but whose culture? development consultant and novelist Heritage city: the case of Bordeaux
Janice Perlman, Founder and President, the Xavier Greffe and Francesca Cominelli,
Mega-Cities Project (United States of America) 30. Culture and urban planning University Paris I Sorbonne (France)
Richard Stephens, President, International
15. Co-producing culture and the urban Society of City and Regional Planners 44. Promoting sustainable urban
environment (ISOCARP) development through investment in
Andy C. Pratt, Centre for Culture and the Creative cultural heritage
Industries, City University of London (United David Throsby, Macquarie University (Australia)
Kingdom of Great Britain and Northern Ireland)
14
LIST OF BOXES
1. Targets of Sustainable Development Goal 5. UNESCO’s action in the field of culture in 8. Examples of financing institutions and
11: Make cities inclusive, safe, resilient crisis and conflict situations, focusing on organizations for cultural projects
and sustainable the urban setting
9. Managing a portfolio of urban cultural
2. Recommendation on the Historic Urban 6 Unlocking the creative potential of cities assets
Landscape (extracts)
7. Good practice cases in rural or peri-urban 10. Investing in historic cities and cultural
3. Cultural heritage for social cohesion settings where culture has contributed to heritage for sustainable development
sustainable and inclusive local patterns
4. Promoting a culture of peace and of development
tolerance in cities
15
INTROdUCTION
CULTURE: key resource

for sustainable urban development
Today, for the first time in history, humanity is predominantly an urban

species.
© Dhoxax/Shutterstock.com*
In 2015, with the adoption of the 17 United Nations’ Sustainable

development Goals (SdGs), the international community committed to
ending poverty, fighting inequality and injustice, and fostering
environmental sustainability by 2030.
Building on several decades of advocacy and operational programmes

on the ground, the 2030 Agenda for Sustainable development acknowledges the integral role of culture across many
of the SdGs, including those that commit to quality education, economic growth, sustainable consumption and
production patterns, and peaceful and inclusive societies. Significantly, culture is directly addressed in Goal 11, which
aims to ‘Make cities and human settlements inclusive, safe, resilient and sustainable’.
Habitat III, the Third United Nations Conference on Housing and Sustainable Urban development, to be held in Ecuador
in October 2016, is a once-in-a-generation opportunity to shape the New Urban Agenda in the context of the SdGs,
and to ensure the crucial role of culture in taking this agenda forward into the next decades. The New Urban Agenda
will have to address the enormous challenges implicit in this transformation, ranging from good-quality housing, creating
green public spaces and ensuring infrastructures and services to billions of people, while controlling land consumption,
environmental pollution, hazards and risks, epidemics and social disruption.
Among these challenges, in a global situation characterized by a large number of metropolitan areas, is the preservation
of the quality of urban life, the protection of urban identities, the valuing of local cultures, old and new, and the promotion
of cultural expressions, the arts and heritage as pillars of sustainable social and economic development.
Culture is key to what makes cities attractive, creative and sustainable. History shows that culture is at the heart of
urban development, evidenced through cultural landmarks, heritage and traditions. Without culture, cities as vibrant
life-spaces do not exist; they are merely concrete and steel constructions, prone to social degradation and fracture. It is
culture that makes the difference. It is culture that defines the city as what the ancient Romans called the civitas, a
coherent social complex, the collective body of all citizens. What we call ‘heritage’ is found in quality public spaces or in
areas marked by the layers of time. Cultural expressions give people the opportunity to identify themselves collectively,
to read the traces of history, to understand the importance of traditions for their daily life, or to enjoy beauty, harmony
and artistic endeavour. These are fundamental social and human needs that must be addressed in the context of urban
development processes, not as optional extras. How do we translate these realities into effective policies in sustainable
urban planning?
As the planet becomes increasingly urban, societies are changing and many new cultural dimensions are taking shape.
This will determine the future of cities and their quality of life, ability to address human needs, capacity to innovate and
how they respond to the economic challenges of the future. In many societies, basic human needs are still unaddressed,
and this is certainly a priority. However, there will be no urban future - less so sustainable urban development - without
a full understanding of the power of culture in addressing the social needs of city dwellers and their aspirations to a
better quality of life.
What is the role of culture in urban development? How has culture influenced urban development across the world?
How can culture make a difference for our urban future? In terms of policy-making aimed at creating sustainable
cities, what are the key implications of the integration of culture in the 2030 Agenda?
In line with the main entry points for culture in the 2030 Agenda, and in particular Goal 11, which dedicates Target 11.4 to
‘Strengthen[ing] efforts to protect and safeguard the world’s cultural and natural heritage’, the Report proposes a reflection
on managing change in cities with culture as a lever for development. In addition, it proposes concrete guidelines which
aim to support decision-makers at national and local levels, experts and other stakeholders involved in urban development
policies and strategies.
17
INTRODUCTION
Box 1
TARGETS OF SUSTAINABLE DEVELOPMENT GOAL 11:

MAKE CITIES INCLUSIVE, SAFE, RESILIENT AND SUSTAINABLE
1. By 2030, ensure access for all to adequate, safe and affordable housing and basic services, and upgrade slums
2. By 2030, provide access to safe, affordable, accessible and sustainable transport systems for all, improving road
safety, notably by expanding public transport, with special attention to the needs of those in vulnerable situations,
women, children, persons with disabilities and older persons
3. By 2030, enhance inclusive and sustainable urbanization and capacity for participatory, integrated and sustainable
human settlement planning and management in all countries
4. Strengthen efforts to protect and safeguard the world’s cultural and natural heritage
5. By 2030, significantly reduce the number of deaths and the number of people affected and substantially decrease
the direct economic losses relative to global gross domestic product caused by disasters, including water-related
disasters, with a focus on protecting the poor and people in vulnerable situations
6. By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to
air quality and municipal and other waste management
7. By 2030, provide universal access to safe, inclusive and accessible, green and public spaces, in particular for
women and children, older persons and persons with disabilities
8. Support positive economic, social and environmental links between urban, peri-urban and rural areas by strength-
ening national and regional development planning
9. By 2020, substantially increase the number of cities and human settlements adopting and implementing inte-
grated policies and plans towards inclusion, resource efficiency, mitigation and adaptation to climate change,
resilience to disasters, and develop and implement, in line with the Sendai Framework for Disaster Risk Reduction
2015-2030, holistic disaster risk management at all levels
10. Support least developed countries, including through financial and technical assistance, in building sustainable
and resilient buildings utilizing local materials
Source: United Nations, 2015
The Report is intended as a policy framework document to support governments in the implementation of the 2030 Agenda
and, as such, is a key contribution to the common United Nations’ action within the framework of the New Urban Agenda.
For the first time, the Report explores the role of culture for sustainable urban development. It seeks to analyse the
situation, trends, threats and existing opportunities in different regional contexts, and to present a global picture of tangible
and intangible urban heritage conservation and safeguarding, along with the promotion of cultural and creative industries
as a basis for sustainable urban development.
CULTURE, DEVELOPMENT AND CITIES
Culture and development have long had a reciprocal and interdependent relationship, although this has only gained
momentum at the international level over the past 30 years. The evolution of holistic approaches is intrinsically linked with
global debates, in particular those around the concept of sustainability. Within the United Nations system, there has also
been not only greater recognition of culture and development, but stronger cooperation within this area, drawing on the
expertise of different international organizations, and that of non-governmental organizations, institutions from the public
and private sectors, academia and experts in development-related fields.
UNESCO has worked steadfastly in recent years to put culture at the heart of the global development agenda. The
Organization has not only enhanced its global advocacy, but has also reinforced its evidence base and policy advice
on the ground. Across its mandate in culture, the benefits of culture for development have thus been increasingly
visible through the Organization’s work in policy guidance, operational action on the ground, networking of
stakeholders and decision-makers, and targeted worldwide initiatives, such as the Millennium development Goals
Achievement Fund (MdG-F) joint programmes, implemented from 2006 to 2013 in cooperation with other United
Nations agencies. Culture, in its manifold expressions ranging from cultural heritage to cultural and creative industries
18
and cultural tourism, has thus proved to be both an enabler and a driver of the economic, social and environmental
dimensions of sustainable development.
Today, we are witnessing a marked shift in the development paradigm. New models of partnership and governance are
being shaped. development actors are shifting closer to the ground and are increasingly aiming to enhance the human
dimension of development.
The human dimension that shapes our cities is not a new element. At its core, the urban setting has always been crafted
and driven by people. Through time, cities have perpetually been driven by human aspiration, built and shaped by human
creativity. Cities and human settlements have stood at the crossroads of trade routes, have been built as an expression of
social order, for protection, serving as hubs for defence, physical security and social continuity. They have developed
through technology, exchange and the pursuit of learning and knowledge. They have driven national economies, offered
access to resources, as well as the promise of economic prosperity. They have been sites of enduring conflict and have
been targeted by violence. They have offered the prospect of new opportunities and a beacon of hope for the vulnerable.
It is through these experiences that cities have evolved.
Cities stand testament to the rich panoply of these phenomena and the interplay of the cultural ingenuity of their
inhabitants. The city, as referred to by Italian architect Aldo Rossi, is ‘the locus of collective memory’ (Rossi, 1966), the
historical accretion of human action, and a dynamic, living environment whose past influences not only the present but
also the future. Culture has provided cities with the dynamic wellspring by which to exchange, challenge, innovate and evolve.
Today, urban heritage can play a fundamental role in enhancing cities’ identities and in providing a platform for social and
economic development. The modern world has taken a long time to recognize the critical importance of preserving the
historic areas of cities as an asset for the development of the urban community, and as the core of its identity. Indeed, in
many parts of the world, historic cities and areas have not been considered as heritage at all until very recently, while the
predominant idea of heritage was limited to the historical monuments that represent the artistic achievement of a city.
However, this traditional view has gradually changed from the 1960s, both in the normative domain and in the public
perception. It is not by chance that today, with over a third of the number of properties, historic cities represent the largest
heritage category in the World Heritage List.1 Although Europe was the first region where urban heritage was included in
collective conservation efforts, the idea started developing in many other parts of the world, and has now become a
universally accepted principle. Certainly, urban conservation practices differ from country to country and in most parts of
the world the situation is still characterized by important threats and challenges. But the idea is now largely supported by
local governments and civil society organizations, as the connection between the conservation and the urban development
process is becoming evident and made more dynamic by the growing interest of cultural tourism and the related industries
for these special areas.
Globally, the role of cultural institutions has been key to fostering urban value and image. In the past, city centres were occupied
by the symbols of power and religion. Today, city centres are also defined by their cultural institutions: museums, galleries,
theatres, academies and memorials. This global transformation illustrates the importance of culture in urban development at
all levels, from defining the core identity of the city to providing a key resource as an important economic sector. It is the way
to socialize the artistic values embodied in the city’s traditions, as well as to attract investment from public and private
institutions. Above all, it is the way to attract citizens and visitors to enjoy the cultural richness of the city and its ability to
become a magnet for artistic creativity. No city today can do without this cultural dimension, and this will become more
apparent in the future, when the demand for cultural services and products expand, particularly in emerging economies.
Contemporary societies, which are increasingly connected, enhance the potential of the creative economy in cities.
Technology speeds up the exchange and distribution of products and ideas. Undoubtedly, creative processes are becoming
one of the most important dimensions of new economies in all regions of the world. Whether in the sphere of design, the
visual and performing arts, the media, or in the areas of food and fashion, the creative economy is gaining ground as one of
the dominant sectors of the future. These processes are inevitably urban-based, as they require a variety of services and
a cultural context in order to thrive. In fact, cities have consistently been a wellspring for creative processes, as places
where innovation meets capital and where market forces operate. The creative economy brings important new
opportunities to cities and opens up new economic dimensions on the global scale. However, creativity needs to be
supported by public policies that value education, cultural expressions, experimentation and innovation, in order to create
the proper mix and ignite the process. They require a cultural environment conducive to this chemistry. Cities provide
these singular and critical spaces.
1
See: http://whc.unesco.org/en/list/
19
INTRODUCTION
In the context of the 2030 Agenda - and indeed beyond – the role of culture for sustainable development and for building
sustainable cities is crucial. It is now increasingly in urban environments that culture and humanity are rooted as a common
denominator.
CULTURE IN THE AGE OF URBANIZATION: A TOOL FOR POVERTY REDUCTION AND

RESILIENCE
Turning the page into the twenty-first century, we are faced with a new era of immense opportunity as well as uncertainty.
Our story is being rewritten at a speed and on a scale that was unimaginable in the previous century. Global shifts have
generated new economic, political and social landscapes with increasingly marked inequalities. Policies, strategies,
assumptions and tendencies that had previously proved reliable have lost resonance, and there is an urgency to adjust to
new realities.
Our century is an urban century. Urbanization, coupled with steady population growth, will bring significant pressure on
cities of the future. Today, urban populations account for 54% of the total global population (United Nations, 2014). In line
with current trends, across all regions the urban population is only set to increase, with a clear escalation in Africa and Asia.
There are some variations in urbanization trends between different parts of the world. In recent years, Africa has seen a
drop in rural to urban migration, with many rural centres being classified into urban areas (see Study Area 1). At the other
end of the spectrum, in Latin America and North America, over 80% of the population lives in urban areas (United Nations,
2014). The scale of urban growth has also led to urban sprawl, an issue that is increasingly linked with rapid growth
metropolises. While cities already play a role within the broader international development framework, this will increase
in the future as a large number of metropolises and intermediate cities are developing at an unprecedented rate.
Cities are a major attraction as centres of cultural capital. They stimulate innovation, creativity and economic development,
and offer opportunities to benefit from their sophisticated social, health and education systems. Urbanization has, however,
been coupled with significant growth of the urban poor and informal settlements. Today, almost 1 billion people live in
slums with poor infrastructure and lack basic services and formal property rights. If not addressed, estimates indicate a
rise to 3 billion people living worldwide in slums by 2050 (United Nations, 2013). The severe poverty of almost half the
world’s population exposes the harsh reality of cities around the world, particularly in the Global South. In addition to a
lack of basic services and access to infrastructure, the urban poor are subjected to exclusion, discrimination and social
stigma. Global, national and local authorities not only need to address inclusive economic growth, but also need to ensure
human rights, equal treatment and dignity for all.
Poverty is not only about material deprivation, it depends on the customs, standards and values of the societies in which
people live. Fostering inclusion and recognition of cultural identities that may lie outside the purview of current policy is
also an important factor in addressing poverty for sustainable urban development. Marginalized areas of cities are often
set aside in urban policy and lack the provision of cultural infrastructure. Conversely, these areas can often have a vibrant
- and often overlooked - cultural life, being hubs of creative talent and civic agency, as evidenced in cities from Rio de Janeiro
to Cape Town. Culture is intrinsic to individual and collective identity and is, therefore, crucial to well-being, expression
and connections within society.
From an economic standpoint, culture makes a direct contribution to poverty reduction through generating income and
creating employment. As the most rapidly expanding economic sectors in both industrialized and developing economies,
the cultural and creative industries can be powerful means to aid poverty reduction. Culture creates the conditions that
facilitate economic and social development, and gives the space and voice for marginalized individuals and groups to
contribute to the development of their societies. Similarly, sustainable planning, design and building practices can support
pro-poor strategies that greatly improve urban areas, ensuring access to resources and enhancing quality of life. While
some cities around the world are increasingly recognizing the cultural assets and expressions that may exist on the
peripheries, these remain largely untapped.
The unprecedented growth of cities has a significant bearing on environmental sustainability while, in parallel, the intensity
and speed of climatic and environmental changes are challenging our complex urban environments. Cities are increasingly
faced with the challenge of ensuring urban environments that will withstand the vagaries of climate change and worsening
resource shortages. Millions of people already live in low-lying coastal areas less than 10 metres above sea level, and rapid
urbanization will lead to more coastal mega-cities in the future. Today’s urban centres consume three-quarters of the
world’s energy and generate three-quarters of the world’s pollution. Water scarcity will also become a key issue for cities
located in certain regions. Some have already adopted ecologically sensitive policies and practices that draw on innovation
20
and technology to improve resource management and build resilience against environmental impact. However, more
innovative solutions still need to be identified.
Traditional knowledge systems at community level not only offer insights into addressing environmental change, but also
inform disaster preparedness and resilience. Natural disasters ranging from flooding and hurricanes to earthquakes have
demonstrated the vulnerability of densely populated urban areas. A city’s vulnerability to geophysical hazards is not only
determined by its location and the quality of its built assets, but also by its economy, population and governance. Culture-
based strategies have been employed to enhance the resilience of cities, ranging from reinforcing the structure of built
heritage to protect against future climate change impacts, to implementing heritage and arts programmes for their citizens
in post-disaster regeneration. The regeneration of green areas within and around cities can provide a buffer of resilience.
Green areas offer a range of environmental and health benefits for citizens, as well as spaces for leisure, relaxation and, in
some cases, food production. ‘Green’ transport initiatives are also helping to lower the carbon footprint of cities.
THE INTERSECTION OF CULTURE AND GLOBALIZATION
Globalization, while not a new phenomenon, has become a revolutionary process influencing the way people live, identify
and interact with the rest of the world. It is often seen as a double-edged sword: at its best for mutual benefit and at its
worst for exploitation. Transnational mobilization and the scale and velocity of information channels have facilitated
networks and new avenues for cultural exchange, trade, knowledge dissemination and education. It has provided cultural
opportunities and upward mobility that has enhanced the quality of life for many people.
Today’s world is increasingly interconnected. Innovation has become key to ensuring a competitive economy. digital
technologies have expanded the scope of creative expression and broadened the distribution of cultural elements beyond
local and national frontiers. Cultural products are increasingly transboundary creations that can be exchanged throughout
the world via the media and the internet, which has generated new possibilities for cities in disaster-risk prevention,
conservation, heritage mapping and archiving. The advent of the digital age has opened up the public realm, the commons,
the sharing of goods and services, and infrastructure within urban areas. In doing so, it has blurred the lines where the
formal economy ends and the informal economy begins. Avenues of public information have stimulated improved
governance in addressing specific issues in cities, enhancing citizen engagement in decision-making and greater
governmental accountability. Innovation, media, transport and new technologies are bringing people together in ways and
at a speed never before imagined.
Yet in today’s increasingly interconnected world, where new tools have opened up avenues for expression and
communication, serving to link and connect people across geographic distances, we are faced with the challenge of how to
ensure genuine human connectivity within cities. In urban environments, while the volume of population increases, it is of
paramount importance to ensure the humanization of the city, to effectively harness these tools for dialogue, rather than
for reinforcing segregation, exclusion, discrimination and inequality. Moreover, cities have different economic, political and
social contexts that can determine the degree to which technologies can be accessed, applied and financed. Therefore,
many societies are unable to benefit on an equal basis from these tools and the potential they hold.
The influence of globalization on culture has given rise to concerns related to its impact on local cultures, with the risk of
homogenization and commodification. While the increase of new actors, including multinational business enterprises, can
question local identities, cultural products, manufactured in several countries as part of a global production chain, can leave
poorer countries at the lowest end of the chain and its financial rewards. The increased competition and human mobility
brought on by globalization processes have also seen city and regional authorities turn to harnessing cultural assets and
resources as a form of place-making or branding to build competitive advantage. Cities and their citizens have introduced
strategies for conserving heritage and revitalizing local culture for economic growth. Tourism policies have also been
employed as a means to generate economic return from the cultural assets of cities. Cultural tourism relying on tangible
and intangible cultural assets today accounts for about 40% of world tourism revenues. Increased tourism to a city can result
in steep influxes of people that can potentially undermine the authentic values of the city in favour of commercialization.
Similarly, urban expansion can also place threats on local communities and traditional ways of life, including food
production. Urban development can lead to a standardization of the urban environment and cultural practices whereby
cities risk losing their distinctive features. Socially insensitive urban heritage policies can also present drawbacks and
consequences. Land and housing values may increase, thus driving lower-income populations away from the city, and
limiting access to cultural heritage for the local communities and stakeholders, particularly marginalized populations,
which can curtail the benefits of conservation. Furthermore, gentrification, sparked by market processes of housing
and urban renewal that lead to the displacement of residents, can potentially dilute the authenticity of vibrant
21
INTRODUCTION
neighbourhoods while increasing the exclusion of low-income urban residents, thereby increasing the social cost for
the overall urban community.
In this context, a delicate balance is needed to ensure inclusive economic development for the benefit of communities and
individuals, while at the same time safeguarding cultural heritage and the diversity of cultural expressions to avoid the risk
of weakening the sense of place (genius loci), the integrity of the urban fabric and the identity of communities. This indicates the
need for strong policies, adequate resources at local level, and the agency and accountability of a wide group of stakeholders.
INCREASED DIVERSITY OF CITIES
Very clearly, cities have become more diverse and heterogeneous. While recent decades have witnessed an increase in
the complexity and drivers of migration and displacement, one constant element is that migrants, both internal and
international, are moving towards cities and urban areas. In recent years, the economic growth of countries in East Asia
and southern Africa, Brazil and India, has generated increased internal migration to larger cities. Within certain countries,
trends in internal migration have been particularly noticeable. In China, for example, 260 million migrants have moved from
rural areas to cities during the last 3 decades, primarily for economic reasons. developing countries have been most
impacted by refugee crises of people fleeing conflict and persecution, and the world is witnessing an emerging intersection
between climate change and refugee issues. Cities thus need to address a variety of forms of migration, including more
permanent forms of displacement. In addition, forced migrants are often likely to be excluded from the formal economy,
while also performing jobs below their skill level. This is a particular concern for female migrants, whose social and economic
contributions are often undervalued, and whose work may not be legally recognized. Immigrants in an irregular situation
are particularly vulnerable - they may be excluded from the formal job market and may live in fear of being arrested. More
broadly, this presents key barriers to the realization of human capabilities, choices and opportunities as critical enablers of
development.
While this diversity contributes to and enriches the cultural identity of cities, such differences are often seized as sources
of contention and fear within societies. Urban settlements are sites where human activity and aspiration converge. due
to the sheer volume of people within a dense urban space, the management of cultural diversity in urban environments
can either overcome societal fissures, or risk exacerbating them. Racism, discrimination and xenophobia are some of the
ways this manifests in urban environments throughout the world. Similarly, the urban development patterns of cities can
reinforce inequalities between neighbourhoods and districts. The city can therefore be a space that bears witness to
increased fragmentation, social polarization and inequalities, particularly for vulnerable populations and for those already
at the edges of society. Cities need to be designed for social interaction and cohesion, which counter spatial segregation.
This also needs to be underpinned by promoting an understanding of diversity in societies, of it being of service to cities
rather than a threat. Safeguarding cultural diversity has a direct impact on the pursuit of social cohesion, well-being and safety.
Cities, as administrative, judicial and economic centres, have a strong bearing on the cultural realm in terms of the degree
of freedom of expression and access to the opportunities and benefits of culture. Recognizing the diversity of the cultural
mix of urban areas is also important as dominant cultures can take precedence in public spaces, reinforcing existing
imbalances or perceptions of the ‘other’, shifting some to the centre and others to the peripheries. It is therefore vital that
cities are planned to be conducive to access. Public spaces (including streets, monuments, cultural institutions, parks, etc.)
can play a crucial role in inclusive processes, strengthening forms of solidarity, integration and joint action in communities.
These spaces must be accessible to all members of the community. This entails ensuring that women and men can equally
access, participate and contribute to the cultural life of their communities. Open public spaces also provide the means of
connecting culture and nature and people and their environment in places where ecosystems, habitat, heritage and human
use converge. The safeguarding of the physical environment of the urban setting, such as the public spaces where intangible
heritage is performed, is an important issue for communities, and needs to be a consideration at municipal level. Similarly,
local governments will need to ensure that residents can experience and fruitfully engage with different aspects of the
cultural diversity of the city.
CITIES AS CONTESTED SPACES
The city was always viewed as a refuge, physically providing people with protection – whether real or imagined - from
external threats and offering a sense of safety and respite. Of course, this does not mean that cities are immune to insecurity.
Urban fragility in cities can impact different areas of a city in various ways, with stable and functioning areas of cities existing
alongside areas that are more susceptible to violence. Today, 46 of the 50 most violent cities in the world are not
experiencing armed conflict. However, while these cities are not involved in armed conflict in the legal sense, their citizens
22
face daily insecurity and violence, which is confirmed by the alarming homicide statistics.2 One of the best-known
manifestations of urban violence is the rise of gangs not necessarily linked to poverty and social exclusion. In a globalized
economy, cities and their concentration of wealth and business opportunities can be a major attractor of these new
phenomena.
There are also significant differences between the degree of gender-based violence (GBV) in urban and rural areas.
Evidence shows that violence against women by male partners is less prevalent in urban than rural areas, while GBV by
non-partners is highest in cities. Poor public spaces and transport can further hinder women’s mobility and safety. Cities
such as Medellin have demonstrated the power of culture as part of their strategy to improve the fight against urban
violence.
Safeguarding cultural heritage and promoting the diversity of cultural expressions, while fostering values and behaviours
that reject violence and build tolerance, are instrumental to the social cohesion of societies, peace-building and the
sustainability of cities. While urban cultural heritage can offer visible platforms of cultural diversity, we have seen too many
examples of such heritage being targeted as a marker of a community’s values in a negative way. In addition, an escalation
in tensions among communities of different cultural backgrounds, religions and beliefs has often been accompanied by an
incitement to violence that, perversely, seizes culture as its justification. We have also witnessed the persecution of
communities on cultural and religious grounds, and how city-dwellers have been targeted by violence as a means of
maximizing the magnitude and dimension of human suffering. The changing nature of conflict and its actors has also shifted
within national borders, posing increasingly complex challenges for local governments and local leaders if they are to protect
their citizens and achieve their development potential.
Over 150 major armed conflicts have erupted since the end of the Second World War. Although none has reached the
destructive scale of a global war, they have brought massive destruction and suffering to cities and urban dwellers in all
regions of the world. In recent times, conflicts have escalated in regions such as Africa and the Middle East, with millions
of displaced people and massive destructions of urban areas, including their cultural heritage. Indeed, cultural heritage is
particularly at risk in the event of civil unrest and armed conflicts. This can be due to its inherent vulnerability given its
central physical situation, as intra-state conflicts often take place in urban environments. Cultural heritage, as the bearer
of a community’s identity, has also increasingly been the target of deliberate attacks and destruction. The loss of cultural
heritage, or the undermining of the diversity of cultural expressions at large, not only affects the records of a community’s
past, but also its prospects for social cohesion, dialogue and reconciliation, as well as its resources for future economic and
social development.
For these reasons, the international community should be prompted to strengthen the protection of culture as an integral
component of humanitarian and peacekeeping operations.
UNESCO’S ROLE IN SUSTAINABLE URBAN DEVELOPMENT
As the lead United Nations agency for culture, UNESCO has enhanced its efforts to promote the role of culture in urban
development processes related to poverty reduction, gender equality, social justice, disaster risk reduction and quality of
life. The urban context is directly linked to UNESCO’s comparative advantage, notably through its six Culture Conventions
on tangible and intangible heritage, the diversity of cultural expressions and creative industries, and the illicit trafficking of
cultural goods. UNESCO generates innovative proposals and assists its Member States in the development of policies,
norms and standards, and supports this through policy advice, programming, monitoring and benchmarking.
With regard to the safeguarding of cultural heritage, UNESCO has responded to the increasingly complex challenges
brought about by global processes and has raised awareness of the need to safeguard the inherited values and cultural
significance of cities. Historic urban areas are among the most abundant and diverse manifestations of our common cultural
heritage. If we look at the current properties inscribed on the UNESCO World Heritage List, over 300 historic urban
properties featuring 544 urban heritage areas are included. This figure continues to increase and indicates the growing
importance of urban heritage as a social, cultural and economic asset for the development of cities.
In recent decades, there has been a shift from a ‘monumental’ concept of heritage to one that encapsulates a broader and
holistic notion of heritage, with its tangible and intangible qualities. The modern concept of urban heritage considers the
historic layering of cultural and natural values and attributes, with a purview that extends beyond the notion of ‘historic
2
See: https://www.unodc.org/gsh/en/data.html
23
INTRODUCTION
centre’ or ‘ensemble’ to include the broader urban context and its geographical setting. It also recognizes that the city is
not static, but subject to dynamic forces across economic, social and cultural spheres. This is the message issued by the
UNESCO Recommendation on the Historic Urban Landscape, adopted in 2011, a milestone text that responds to the need
to frame urban heritage conservation within the social and human development process (Box 2).
As to safeguarding intangible heritage in urban areas, the implementation of the 2003 Convention for the Safeguarding
of the Intangible Cultural Heritage demonstrates the deep-rooted interdependence and reciprocity between intangible
cultural heritage and tangible cultural and natural heritage. Intangible heritage, being the living component of urban
heritage, is integral to creating and shaping the cultural identities of cities. Conversely, the built and natural environment
nourishes these practices. Therefore, effective safeguarding strategies in urban environments must consider the spaces
and places where intangible heritage is practised. Intangible heritage can be an indispensable tool for community self-
governance, in providing crucial links between rural and urban communities, solidarity, and in expressing the heterogeneity
of migrant communities.
Box 2
RECOMMENDATION ON THE HISTORIC URBAN LANDSCAPE (extracts)
I. Definition
8. The historic urban landscape is the urban area understood as the result of a historic layering of cultural and
natural values and attributes, extending beyond the notion of “historic centre” or “ensemble” to include the
broader urban context and its geographical setting.
9. This wider context includes notably the site’s topography, geomorphology, hydrology and natural features, its
built environment, both historic and contemporary, its infrastructures above and below ground, its open spaces
and gardens, its land use patterns and spatial organization, perceptions and visual relationships, as well as all
other elements of the urban structure. It also includes social and cultural practices and values, economic processes
and the intangible dimensions of heritage as related to diversity and identity.
10. This definition provides the basis for a comprehensive and integrated approach for the identification, assess-
ment, conservation and management of historic urban landscapes within an overall sustainable development
framework.
11. The historic urban landscape approach is aimed at preserving the quality of the human environment, en-
hancing the productive and sustainable use of urban spaces, while recognizing their dynamic character, and pro-
moting social and functional diversity. It integrates the goals of urban heritage conservation and those of social
and economic development. It is rooted in a balanced and sustainable relationship between the urban and
natural environment, between the needs of present and future generations and the legacy from the past.
12. The historic urban landscape approach considers cultural diversity and creativity as key assets for human,
social and economic development, and provides tools to manage physical and social transformations and to en-
sure that contemporary interventions are harmoniously integrated with heritage in a historic setting and take
into account regional contexts.
13. The historic urban landscape approach learns from the traditions and perceptions of local communities, while
respecting the values of the national and international communities.
Source: UNESCO, 2011
Historically, creativity and innovation have both sustained and enriched urban life. The protection and promotion of the
diversity of cultural expressions is now clearly linked to cities. Creativity is a primary driver of economic growth and is
integral to dynamic, vibrant and stimulating cities. It plays a role in attracting talent and investment, spurring innovation
and improving overall quality of life. The 2005 Convention on the Protection and Promotion of the diversity of Cultural
Expressions recognizes ways for cities to promote and protect creativity in the contemporary urban context, and sets the
framework for countries to put in place policies, measures and activities to facilitate creativity, artistic freedom, cultural
entrepreneurship and creative industries. The quadrennial reports of the 2005 Convention attest to a range of policy
initiatives being implemented by Member States for culture in urban contexts around the world. Emerging South-South
cultural cooperation is being supported by government funding mechanisms that promote touring, exchange and cultural
collaborations between creators in different cities. Governments are also building on the digital age by harnessing
Information and Communication Technologies (ICTs) to bridge gaps between rural and urban areas, opening up access to
culture, helping socially integrate minorities, and offering new artistic tools that expand creative horizons.
24
Over the years, UNESCO has been developing its networks to promote cooperation with and among cities and local
governments for interaction and joint action. Cities provide an engine and a fertile ground for urban development through
culture and innovation, science and technology, education, social inclusion, and mitigating environmental impacts. The
World Heritage Cities Programme works to develop a theoretical framework for urban heritage conservation and provides
technical assistance to Member States to implement new approaches. The UNESCO Creative Cities Network (UCCN)
places cultural diversity and creativity as strategic factors for local sustainable development across seven creative fields.
In the field of education, the UNESCO Global Network of Learning Cities (GNLC), aligned with the UNESCO Institute for
Lifelong Learning, supports lifelong learning in cities. The International Coalition of Inclusive and Sustainable Cities - ICCAR,
a collaborative global platform for cities and municipalities, assists local authorities in combating discrimination.
UNESCO’s Man and the Biosphere Programme (MAB) is an intergovernmental scientific programme implemented in
internationally recognized biosphere reserves.
UNESCO’S GLOBAL REPORT: METHODOLOGY AND STRUCTURE
In 2015, recognizing that culture is a key tool for promoting sustainable urban development through the safeguarding of
cultural heritage and the promotion of the diversity of cultural expressions, UNESCO launched the preparation of the Report,
as part of its Culture and Sustainable development Initiative. The Report, 'Culture: Urban Future', was elaborated with the
support of nine regional partners, high-level experts and international organizations covering all regions of the world.
The International Conference on Culture for Sustainable Cities (Hangzhou, China, 10-12 december 2015) convened high-
level representatives of governments and international organizations, mayors and city managers, experts, civil society,
academia and non-governmental organizations to discuss and expand on the themes of the Report. Many of the participants
of the conference have been integral to the Steering Committee and have provided commentaries on key themes of the
Report. A key result of the conference was the agreement of nine outcomes to contribute to the elaboration of a New
Urban Agenda in the context of the implementation of the 2030 Agenda.
The Report consists of the following sections:
Part I situates the Report in its global context, presenting the current situation of culture and sustainable urban
development based on the results of a global survey by UNESCO together with nine regional partners.
Part II focuses on thematic reflections on the role of culture to: (1) promote a people-centred approach to sustainable
urban development; (2) ensure a quality urban environment for all; and (3) foster integrated policy-making, building on the
power of culture.
The Conclusions and Recommendations comprise a summary of the key recommendations drawn from the findings of
the regional and thematic parts of the Report.
The Dossiers on UNESCO’s Networks for Sustainable Urban development comprise sections on UNESCO’s Strategic
Partnerships for Cities; World Heritage and Cities; the UNESCO Creative Cities Network (UCCN); the International
Coalition of Inclusive and Sustainable Cities – ICCAR; the UNESCO Man and the Biosphere Programme (MAB) for
Sustainable Cities; the UNESCO Global Network of Learning Cities (GNLC) ; disaster Risk Reduction for Sustainable
Urban development; and Water and Sustainable Cities.
An Atlas includes detailed maps to situate the cities belonging to the UNESCO networks presented in the dossiers section.
The Habitat III Conference comes at a time when humanity is faced with several marked challenges, which will increasingly
impact upon cities. The 2030 Agenda has provided the springboard in driving forward a holistic and inclusive approach to
the future development of cities. In this respect, Goal 11 provides a clear roadmap for sustainable urban development.
The inclusion of culture in this Goal offers a unique opportunity to link policy areas that have not always been aligned and
have advanced at different speeds.
Cities are increasingly asserting their importance on the international political, economic and cultural scenes. As spaces
where diverse people meet, interact and develop projects and strategies, they will be the protagonists of the twenty-first
century global society. Culture will no doubt be at the core of their future’ sustainability.
25
Quito (Ecuador)
© Anton_Ivanov/Shutterstock.com*
26
PART I
GLOBAL SURVEY
ON THE ROLE OF CULTURE
FOR SUSTAINABLE
URBAN DEVELOPMENT
27
1 2
STUdy area
Angola, Benin, Botswana, Burkina Faso, Burundi, Cabo Verde, Cameroon, Central
STUdy area
Algeria, Bahrain, Egypt, Iraq, Jordan, Kuwait, Lebanon, Libya,
African Republic, Chad, Comoros, Congo, Côte d’Ivoire, Democratic Republic of Mauritania, Morocco, Oman, Palestine, Qatar, Saudi Arabia, Sudan,
the Congo, Djibouti, Equatorial Guinea, Eritrea, Ethiopia, Gabon, Gambia, Ghana, Syrian Arab Republic, Tunisia, United Arab Emirates, Yemen.
Guinea, Guinea-Bissau, Kenya, Lesotho, Liberia, Madagascar, Malawi, Mali,
Mauritius, Mozambique, Namibia, Niger, Nigeria, Rwanda, Sao Tomé and
Principe, Senegal, Seychelles, Sierra Leone, Somalia, South Africa, South Sudan,
Swaziland, Togo, Uganda, United Republic of Tanzania, Zambia, Zimbabwe.
3 4
STUdy area
Albania, Andorra, Austria, Belgium, Bosnia and Herzegovina, Bulgaria,
STUdy area
Armenia, Azerbaijan, Belarus, Georgia, Kazakhstan, Kyrgyzstan, Russian
Croatia, Cyprus, Czech Republic, Denmark, Estonia, Finland, France, Federation, Tajikistan, Turkmenistan, Ukraine, Uzbekistan.
Germany, Greece, Hungary, Iceland, Ireland, Israel, Italy, Latvia, Liechtenstein,
Lithuania, Luxembourg, Malta, Monaco, Montenegro, Netherlands, Norway,
Poland, Portugal, Republic of Moldova, Romania, San Marino, Serbia,
Slovakia, Slovenia, Spain, Sweden, Switzerland, The former Yugoslav Republic
of Macedonia, Turkey, United Kingdom of Great Britain and Northern Ireland.
5 6
STUdy area
Afghanistan, Bangladesh, Bhutan, India, Iran (Islamic Republic of),
STUdy area
Australia, Brunei Darussalam, Cambodia, Cook Islands, China,
Maldives, Nepal, Pakistan, Sri Lanka. Democratic People’s Republic of Korea, Fiji, Indonesia, Japan, Kiribati,
Lao People’s Democratic Republic, Malaysia, Marshall Islands, Micronesia
(Federated States of), Mongolia, Myanmar, Nauru, New Zealand, Niue,
Palau, Papua New Guinea, Philippines, Republic of Korea, Samoa,
Singapore, Solomon Islands, Thailand, Timor-Leste, Tonga, Tuvalu,
28
Vanuatu, Viet Nam.
7 8
STUdy area Canada, United States of America.
STUdy area
Antigua and Barbuda, Argentina, Bahamas, Barbados, Belize, Bolivia
(Plurinational State of), Brazil, Chile, Colombia, Costa Rica, Cuba,
Dominica, Dominican Republic, Ecuador, El Salvador, Grenada,
Guatemala, Guyana, Haiti, Honduras, Jamaica, Mexico, Nicaragua,
Panama, Paraguay, Peru, Saint Kitts and Nevis, Saint Lucia, Saint Vincent
and the Grenadines, Suriname, Trinidad and Tobago, Uruguay, Venezuela
(Bolivarian Republic of).
GLOBAL SURVEY ON THE ROLE OF CULTURE FOR

SUSTAINABLE URBAN DEVELOPMENT
U
rban heritage is a particularly extended field of research, both in the academic and public
policy sectors. In all regions of the world, issues related to urban heritage conservation and
regeneration have been dominant in the architectural and planning professions, and in
heritage management policies and processes, albeit on significantly different levels – both formally
and informally. This certainly reflects the different approaches and attentions of scholars and policy-
makers to the category of ‘urban heritage’ that came to the forefront only relatively recently,
beginning with Europe and North America in the 1960s. However, no systematic research on the
global situation of urban heritage has been carried out so far, due largely to the subject’s great
diversity and to the wide range of existing approaches.
While monumental and archaeological heritage have found a ‘global’ definition and enjoy a largely
agreed international scientific system of principles and practices, the same cannot be said of urban
heritage. Heritage professionals have tried to frame urban heritage conservation within established
charters, such as for instance the 1987 ICOMOS Washington Charter for the Conservation of Historic
Towns and Urban Areas. However, in reality, the existing practice diverges fundamentally from this
system of established principles, even in regions where public policies are present and implemented.
Indeed, the 2011 Recommendation on the Historic Urban Landscape is an attempt to address this
diversity within a unified set of guidelines.
For this reason, UNESCO has promoted, in view of Habitat III, the initiative to study the global
situation of urban heritage, whose results are presented here in synthesized form. This research
effort has confirmed not only the great diversity of situations that exist in the different parts of the
world, but also the growing interest of governments, local communities and citizens in preserving
their historic cities and settlements, and in fostering the role of culture in urban regeneration. The
results of this research effort, conducted by several teams in different regions, also highlight
the need to continue investigating this important and expanding heritage field, and developing the
professional networks that cooperate internationally in the promotion of culture and heritage as
key drivers and enablers of sustainable urban development. UNESCO is committed to implementing
this agenda in the future. The full version of each regional report as submitted by the partnering
institution, including the bibliography, can be found on the UNESCO website.
29
Coordinator of the regional study: ARTERIAL NETWORK
Created on Gorée Island (Senegal) in 2007, Arterial Network is a non-

profit civil society network that brings together non-governmental
organisations, institutions and companies of the creative economy, as
well as artists and stakeholders from the African cultural sector. The
network undertakes five core functions, namely capacity building,
market access, advocacy and lobbying, research, and organisational
development and sustainability, in order to create an enabling and
sustainable environment for democratic arts practices in Africa. The
vision of Arterial Network is to develop a vibrant, dynamic and
sustainable African creative sector engaged in improving the living and
working conditions of artists and cultural practitioners as well as
enhancing quality in the arts. With this aim, Arterial Network organises
events, conferences and educational programmes throughout the
continent, and has developed partnerships with various universities
and research centres in cultural fields.
30
STUdy area
Angola, Benin, Botswana, Burkina Faso, Burundi, Cabo Verde, Cameroon,
Central African Republic, Chad, Comoros, Congo, Côte d’Ivoire,
Democratic Republic of the Congo, Djibouti, Equatorial Guinea, Eritrea,
Ethiopia, Gabon, Gambia, Ghana, Guinea, Guinea-Bissau, Kenya, Lesotho,
Liberia, Madagascar, Malawi, Mali, Mauritius, Mozambique, Namibia, Niger,
Nigeria, Rwanda, Sao Tomé and Principe, Senegal, Seychelles, Sierra Leone,
Somalia, South Africa, South Sudan, Swaziland, Togo, Uganda,
United Republic of Tanzania, Zambia, Zimbabwe.
HIGHLIGHTS
Sub-Saharan Africa has an important tradition of urban
settlements, dating back as early as the eighth century, which
is gradually being rediscovered.
The specificity of African cities, particularly relating to their
pre-colonial, colonial and post-colonial urban heritage, as
well as the crucial importance of intangible practices, should
be more widely acknowledged.
As part of Africa’s current urban revolution, urbanization
pressures and unregulated land use threaten urban heritage
and generate a loss of traditional community values and
practices.
Recognizing critical development challenges, notably access

to education, basic urban services and infrastructure, is
essential for encouraging inclusive and meaningful urban
conservation.
In African cities marked by recently urbanized populations

and inequalities rooted in colonial-era patterns of
segregation, culture-based approaches are particularly
relevant to fostering a sense of belonging.
As a new generation of cultural entrepreneurs emerges,
culture increasingly provides a stage for community
participation and renewed links between governments and
citizens.
Urban development strategies have often disregarded the

social and cultural realities of African cities. Culture can now
become a strategic tool to regenerate marginalized and
informal areas.
31
Djenné (Mali)
© Quick Shot/Shutterstock.com*
AFRICAN URBANIZATION TRAJECTORIES sixteenth century. Further south, Great Zimbabwe, a city
THROUGHOUT HISTORY built of stone in the eleventh century and abandoned in
the sixteenth century, provides evidence of early
Early urban settlements developed throughout the urbanization.
continent, beginning in the eighth century. African cities
flourished prior to contact with the Europeans, although Colonization fostered coastal development and
they were not as widespread as in Europe, Asia or the segregated urban spaces. To organize the trans-Atlantic
Middle East. However, little remains of these early cities, slave trade, Europeans developed economic networks
as most were built using ephemeral materials which along coastal areas, where fort towns and, later, colonial
required frequent renewal. In West Africa, the capitals were established. Inland, West African cities
development of empires led to the growth of cities in the dwindled in the face of this new competition. In some
interior to house the seats of royal power or to serve as cases, colonial towns were built upon indigenous
trade centres. Koumbi-Saleh, the capital of the Ghana settlements. As colonization unfolded from 1880 to 1960,
Empire in present-day Mauritania, was home to as many urbanization intensified. Colonial cities were constructed
as 30,000 inhabitants in the eleventh century, while with European needs in mind. Concerns about health,
Timbuktu, as a centre for trans-Saharan trade, counted an combined with racist ideologies, inspired models based
estimated 70,000 inhabitants in the early sixteenth on segregation and spatial segmentation. The colonial
century. Urban centres also emerged through the trans- functions bestowed on cities contributed to ‘functional
Atlantic slave trade in the Yoruba and Ashanti kingdoms, retardation’, transforming cities into warehouses or
including Abomey and Porto-Novo. administrative capitals, rather than manufacturing hubs.
This colonial urban model has exerted a strong influence
CASE STUDY 1 SOUTH ETHIOPIA until contemporary times; 28 of the 50 largest cities in
Africa were once colonial capitals (Myers, 2011).
SUDAN
Lamu (Kenya) SOM

UGANDA
The role of civil society in KENYA
mitigating the social and Urbanization accelerated in post-colonial times,

cultural impacts of planned
DA
particularly in the 1960s. Thanks to massive rural to
transportation infrastructure
DI TANZANIA
urban migration during this period, the populations of
Africa’s cities grew and the urbanization rate increased
In 2011, the government of Kenya approved the development substantially, particularly in the former colonial capitals.
of a large multipurpose transport communication corridor, the Some countries undertook planned developments to
Lamu Port-South Sudan-Ethiopia Transport Corridor, to be diminish the predominance of colonial capitals,
located 20 km north of Lamu’s old town. The project includes establishing new capitals, such as Abuja in Nigeria,
the development of a commercial port, a new airport, an ex- dodoma in the United Republic of Tanzania and Lilongwe
tensive rail and highway network, an oil refinery and a resort in Malawi. From 1950 to 2000, Africa’s share of the global
city. Civil society, organized under the ‘Save Lamu Initiative’, urban population increased modestly from 3% to 7%,
expressed concerns about the project’s environmental and reaching 197 million people (United Nations, 2014).
cultural impact in the absence of an impact assessment study.
They also underlined the lack of engagement with the local Since the turn of the twenty-first century, Africa has
experienced a new urban revolution. The urban population
community and the rising land-grabbing and speculation,
which threaten the livelihoods of fishing communities and the
integrity of the historic centre. grew from 200 million in 2000 to 360 million in 2015 and
is expected to triple by 2050, when 1 in 5 of the world’s
urban dwellers will be African. This urban growth has taken
Source: Arterial Network, report for Study Area 1
place in half the time it took Europe and North America to

reach similar levels in the nineteenth century. The
In East Africa, urban development was concentrated urbanization level, estimated at 38% in 2015, is projected
along the coast of the Indian Ocean. Starting in the to reach 50% by 2040 (United Nations, 2014). The growth
thirteenth century, Swahili cities based on trade with of the urban population is largely driven by population
Arabia and India littered the coastline of present-day growth and the reclassification of rural centres into urban
Somalia (Mogadishu and Brava), Kenya (Lamu, Gede and areas. Rural to urban migration has diminished in
Mombasa), United Republic of Tanzania (Zanzibar and significance.
Kilwa) and Mozambique (Pemba). Inland urban
development also took place in Ethiopia in religious Africa continues to be characterized by primate cities,
centres such as Axum, as well as the itinerant political although secondary cities are emerging. Colonial urban
capitals of the Amharic kingdom, including Addis Ababa, development resulted in the predominance of larger
founded in the nineteenth century. Other sub-regions cities, particularly colonial capitals. In 2014, out of the
also saw early urban development. Central African world’s 27 primate cities (cities which exceed 40% of their
kingdoms, such as the Bakongo, developed urban centres, country’s urban population), 9 were African. The
including São Salvador, located in present-day Angola, continent now has two megacities of over 10 million
which hosted 30,000-100,000 inhabitants in the inhabitants, Lagos (Nigeria) and Kinshasa (democratic
32
STUdY AREA
Saint Louis (Senegal)

© Gilles Waluzinski*
Republic of the Congo), while Johannesburg (South economic wealth is generated by the services sector.
Africa), dar es Salaam (Tanzania) and Luanda (Angola) will Urban economies, therefore, tend to be fragile, as they
achieve this status by 2030. The number of cities of over lack the productive industrial base which can generate
5 million inhabitants is expected to increase from 5 in large-scale employment; colonial towns were rarely
2015 to 15 in 2030. Medium-sized towns of between industry-based and post-independence urban industries
1 and 5 million inhabitants house 24% of the urban were often undermined by trade liberalization policies.
population, a figure which will likely continue to grow. Creating sustainable jobs with decent wages remains a
However, 47% of the urban population still lives in cities pressing challenge.
of 300,000 inhabitants or less (United Nations, 2014).
Rates of primacy are therefore falling, while the network
of secondary cities is expanding. To decongest large cities, A DIVERSE URBAN HERITAGE FACING
the planned creation of satellite towns is also underway GROWING THREATS
in some countries, such as Tatu City near Nairobi (Kenya).
Three main categories of urban heritage are found in the
Rapidly growing African cities are faced with critical region. The first corresponds to ancient African cities,
urban challenges. 62% of the urban population lived in which were shaped by the convergence of indigenous
slums in 2010, compared to an average of 33% for dynamics with Islamic, Mediterranean or Asian influences
developing countries (UN-Habitat, 2010). 50% of and, in some cases, characterized by a circular urban
Africans remain at incomes below US$1.25 a day (UN- morphology. The use of natural resources, notably clay or
Habitat, 2014). The rising middle class is still fragile. mud, is a strong cultural marker. Next are Africa’s colonial
Unlike other regions, urban poverty rates are not cities. With the industrial revolution in Europe, these
substantially lower than rural ones, and food insecurity cities often became testing grounds for urban and
can often be even higher in cities. This poverty, combined architectural modernism. despite a certain amalgamation
with widespread inequalities and social or spatial of building traditions, vernacular architecture was forced
segregation, leads to high levels of social exclusion and to make way for Western building styles. Liberation
urban violence, which may induce social upheavals, as well heritage is the third category, one which is deeply
as extremism among disaffected youth. connected to newly independent countries. The
significant features of post-colonial cities include
African cities are among the most vulnerable to disasters monumental government precincts, which reflected
and climate change, as many of the larger cities are found international architectural trends and nation-building
along the coast – a direct legacy of colonialism. Providing efforts, as well as places and narratives of popular
basic services to urban populations remains a major struggle (public squares, schools, prisons, private homes
challenge. Access to water, health, sanitation, electricity of liberation leaders, etc.).
and waste disposal services is low, unreliable or
prohibitively expensive, which impacts economic
development. With demographic growth, the availability
of education and child health services is also very limited.
The multi-layered ‘mosaic’ of African landscapes with
Providing public transport facilities is another critical
challenge, especially in larger cities, where traffic
their close interrelation between urban and rural,
congestion and air pollution are major issues. highlights the need for an inclusive landscape approach
which is based on the recognition of the continuity of
Service-based urban economies remain fragile in Africa. local value systems and the dynamics of informal
Although the region has experienced a period of recent processes and community driven associations.
economic growth, with a tripling of the per capita gross
national income from 2003 to 2015,1 this growth has
Zanzibar Recommendation on the Application of the Concept of the Historic Urban
Landscape in the African context
largely been fuelled by the natural resources sector,
which is less city-based. Some cities, such as douala
(Cameroon) or Port Harcourt (Nigeria), are witnessing an
oil-based economic boom. Elsewhere, most urban Intangible heritage is a major defining feature of African
cities. In early cities, social relationships took precedence
over physical structures. The essence of the town came
1
See: http://data.worldbank.org/region/SSA
33
from a feeling of belonging to a religious or political order, significant part of the remaining built heritage and
rather than from the built environment, as in European oppressive colonial states presents a challenging set of
cities. Though they regularly changed the sites of their ethical and ideological issues, as ethnic segregation was
capitals, the Yoruba people of present-day Nigeria and embedded in the colonial built environment.
Benin always maintained the original names of these Representative buildings of the colonial powers were
cities, known as ‘urban collectives’. Traditional and often deliberately erected in places linked to the urban
spiritual practices are still actively imprinted on urban life. identities and cultural practices of African residents.
Tangible heritage is intimately linked to intangible These colonial-era monuments have often fallen into
practices, as the built environment is a crucial space for disrepair due to neglect, as in the case of Saint-Louis
expressing socio-cultural practices. Abomey (Benin) (Senegal) where the local population maintains a certain
represents a particularly notable example: the present ambiguous relationship with the colonial heritage of the
urban structure remains closely connected to long- city. Such a feeling can be explained, on the one hand, by
standing traditional practices. In a context of rapid the externality of this heritage, which is not founded on
socio-cultural change, the delineation of ‘local tradition’ is endogenous cultural support and, on the other, by the
constantly renegotiated. A better recognition of colonialist memory that it affirms, as an acute reminder
intangible heritage could lay the groundwork for the of slavery. In other cases, colonial heritage has been
implementation of the historic urban landscape approach deliberately defaced, as seen in recent student protests
in African cities. at the University of Cape Town (South Africa), which led
to the removal of a statue of British colonialist Cecil John
CASE STUDY 2 Rhodes.
Island of Mozambique (Mozambique) and Djenné (Mali)
Recognizing the legacies upon which urban centres have
Meeting the need for housing while preserving
been built is essential to social cohesion, especially as
the urban landscape colonial urban heritage is often imbued with anti-colonial
struggles and narratives of freedom. Civil society is often
on the frontlines in this process, as seen in Kampala
Island of Mozambique (Mozambique) is a city known for
its unique architectural cohesiveness, rooted in the continuous
use of sixteenth-century building techniques and materials. (Uganda) with the recent campaign surrounding the
While the northern part of the city hosts the administrative National Museum. Although the museum, which is
and political centre, with stone and lime buildings, the south- housed in a colonial building, once faced relocation, civil
ern part of the city is characterized by macuti houses inhabited society organizations have fought to keep the museum on
by local communities. While the roofs were traditionally built its original premises, in view of its historic value.
using coconut palm leaves, their increasing price – linked to
deforestation and growing tourism demand – has led resi- Urban heritage faces mounting threats linked to
dents to use more affordable and durable zinc sheets. Resolv- urbanization and unregulated land use. Many countries
ing this tension between architectural integrity and the have undergone widespread liberalization, deregulation
and privatization over the past two decades. The flow of
legitimate improvement of standards of living is pivotal to
foreign direct investment, often linked to land
meeting urban conservation and regeneration objectives.
In Djenné (Mali) the urban landscape is shaped by earthen speculation, has significantly altered the spatial
architecture, used primarily for religious and residential geographies of many cities, while nurturing gentrification
buildings. While keeping their living heritage alive, local and social fragmentation. Land pressures have spurred
craftsmen and masons are adapting to the changing aspi- the destruction of traditional housing, as in Mombasa
rations of the city’s population. In order to reduce housing (Kenya), where macuti homes with inner courtyards are
maintenance costs, the use of fired clay tiles on top of mud being erased by high-rise, compact development. While
structures has expanded, with negative impacts on both vi- large-sized infrastructure projects address legitimate
sual integrity and structural solidity. In order to meet the needs for transportation and energy, their inadequate
constraints of local populations while ensuring heritage pro- planning has had a devastating impact on urban heritage,
tection, financial support was provided for re-mudding. leading to widespread destruction of traditional
Source: Arterial Network, report for Study Area 1 architecture and the urban layout.
The encroachment of urbanization also entails a loss of

traditional community values and practices. In Swahili
Attitudes towards urban heritage, particularly colonial coastal cities, the ancient art of boatbuilding and
heritage, are ambivalent. The under-representation of community-based trade are being pushed out, while new
African cities on the World Heritage List reflects this lack architectural and urban practices transform the urban
of recognition; only 17 cities or sites in urban contexts landscape. In larger capitals, such as Addis Ababa
have been inscribed on the continent, most of them since (Ethiopia), communal living has morphed through the
the turn of the twenty-first century.2 The link between a development of residential blocks. Tourism-based
gentrification may also lead to the sanitization of urban
spaces or the production of reductionist, tourism-focused
2
34
STUdY AREA
gentrification. Although a tourism-based economy has

contributed to unlocking funding for restoration, its
benefits for local communities have been ambiguous; an
increase in rentals and the conversion of housing into
tourism accommodation has often led to eviction of the
poor. The lack of socio-economic benefits, coupled with
regulatory constraints, has negatively affected the
attitudes of local residents towards heritage and created
tensions between universal World Heritage values and
socio-economic values.
CULTURE IN AFRICAN CITIES:

A POWERFUL FORCE FOR MORE
INCLUSIVE URBAN SOCIETIES
African cities are marked by growing inequalities. Spatial

and social segregation patterns left over from the colonial
Harar Jugol (Ethiopia)
© Ilia Torlin/Shutterstock.com*
era have permeated contemporary urban societies and
spaces, now characterized by a strong polarization
narratives, which in turn displaces people and pushes between slum-dwellers and the upper-class residents of
their intangible heritage to the margins. In some areas, new developments. In this context, urban conservation
migration has transformed the social and spatial and regeneration have sometimes favoured affluent
morphology, with possible impacts on the culture of urban elites and contributed to gentrification, as
heritage maintenance. illustrated by creative hubs, such as Woodstock in Cape
Town (South Africa). Urban conservation has also, in
Civil conflicts and geopolitical instability are another major some cases, conflicted with community expectations,
threat. The invasion of Timbuktu (Mali) by extremist armed
groups in 2012 led to the destruction of the World
Heritage mausoleums and severely affected the city’s CASE STUDY 3 BOTSWANA
intangible heritage. In Freetown (Sierra Leone), the Cape Town (South Africa) NAMIBIA
SWAZ
continuous neglect of the city’s monumental sites Unravelling the legacy of

throughout the civil war is endangering its cultural
LESOTH
apartheid through SOUTH AFRICA
memory. Many other sites across the region have culture-led development
experienced severe damage and sometimes destruction
due to conflicts or social unrest. developing risk Apartheid’s urban planning model turned Cape Town into
management protocols and up-to-date heritage South Africa’s most segregated city by 1985. Today, most of
inventories is therefore crucial. its cultural facilities remain located in formerly white areas,
resulting in a lack of access to culture for disadvantaged
Climate change and environmental risks also have a direct communities. Built in the 1920s for the resettlement of black
impact on African historic cities, as in other areas of the
urban workers, Langa is the oldest black African township
of Cape Town. It is deeply associated with well-known po-
developing world. Traditional buildings were often litical icons such as Nelson Mandela and Chief Langalibalele.
constructed with perishable or porous material, including It also has a rich artistic legacy, with icons of the South
mud bricks in the Sahel and coral stone and sand mortar African jazz scene having been born in the area. Music,
on the Swahili Coast. The increased intensity of droughts dance, poetry, visual arts and theatre are central to local cul-
and desertification, seasonal heavy rains and soil erosion, tural identity.
accelerates the degradation process. Coastal cities, such
as Saint-Louis (Senegal) or Grand-Bassam (Côte d’Ivoire), The development of the Langa Cultural Precinct was spear-
are particularly vulnerable to flood-related deterioration. headed by the Arts and Culture Department’s World Design
Capital (WDC) 2014 project, which aimed to create a place
Meeting development challenges is a key priority for for contemporary artistic and cultural expression and provide
encouraging inclusive and meaningful urban conservation.
inclusive, accessible and versatile spaces for the community
to celebrate their rich heritage. While challenges remain, the
In poverty-struck African cities, the safeguarding of centre and its surrounding cultural precinct have seen a
cultural heritage and its integrity and authenticity needs number of positive developments, such as the establishment
to be carefully integrated with the much-needed of cooperative partnerships between local community orga-
upgrading of infrastructure and services. Improving nizations and the municipal Arts and Culture Department for
access to housing and basic services should be seen as a future cultural developments.
necessary condition of urban conservation. In historic Source: Arterial Network, report for Study Area 1
areas, urban conservation has often nurtured
35
especially when heritage is perceived as a vestige of CASE STUDY 4 ALGERIA
colonial domination.
Segou (Mali) MAURITANIA
Fostering ownership and a sense of belonging is therefore

An innovative MALI
a complex but essential endeavour. As most urban

entrepreneurial model for
populations were only recently urbanized, cities are seen
culture-based urban NIGER
BURKINA FASO
as places of transit, rather than of cultural memory. As

regeneration GUINEA
traces of colonization’s thievery, post-colonial land-grabs

and forced removals still riddle the urban landscape, an
The former capital of the ancient Bambara kingdom from the
mid-seventeenth century, Segou lies along the Niger River,
acute awareness of this layered complexity is necessary. 240 km away from Bamako. Its urban heritage is character-
Fostering a sense of belonging through cultural ized by vernacular Sudanese architecture in red terracotta
memorialization, heritage promotion and inter- and colonial buildings. With an estimated population of
generational education is important in order to build 163,000 inhabitants, Segou’s development indicators are
social cohesion. low compared to the rest of the country, with approximately
65% poverty rate against 49% nationwide. Yet, the city has
In this light, culture and heritage can positively contribute an interesting development potential due to its geographic
to social cohesion. In recent years, several successful location, its economic base and its outstanding urban her-
partnerships between authorities and traditional itage, history and cultural vitality.
custodians were initiated in cultural sites throughout the
region; cooperation with the masons’ corporation in the
With a view to harnessing these assets, a collective of local
entrepreneurs working through the Foundation Festival on
rebuilding of Timbuktu’s mausoleums in 2013 is one the Niger launched the Festival sur le Niger in 2005. Each
example (see Case Study 62). This type of framework year, the festival gathers national and international artists
allows for the mobilization of local populations for and musicians and showcases local cultural industries. Con-
heritage maintenance, while affirming their belonging to ferences and workshops reflect cultural and development
the community and reinforcing local economic networks issues, while the artisans and agricultural fair allows local
linked to crafts and conservation. producers to reach new markets. With around 30,000 visi-
tors per year on average, the festival has been a major
Heritage and culture often provide the stage for catalyst for the local economy and has structured the arts
participative processes. With the growing involvement of and crafts and agricultural sectors. Over 150 local enterprises
local authorities, urban conservation and regeneration are involved, contributing to 140 direct and 2,000 indirect jobs.
efforts stimulate the emergence of new types of
The tourism sector has boomed, increasing ten-fold between
collaborative partnerships, which support civic pride and
2005 and 2010, which has fostered the gradual upgrading
of tourist infrastructure. Through this dynamic, other culture-
the empowerment of local populations, as well as based initiatives have emerged, including the Kore Cultural
inclusive community projects. In Mombasa (Kenya), Centre, a training centre dedicated to cultural professions,
extensive consultations were conducted between the and the Ndomo Centre, a production centre for traditional
conservation unit of the National Museums of Kenya and Bogolan weaving, targeting unemployed youth. Two certi-
the Swahili communities to discuss the regeneration of fications were created through the SMARTS SEGOU programme
the Governor’s house into a community restaurant run by which focused on Segou woven loincloths and Segou
women. tourism. The city has recently initiated a project entitled
‘Segou, Creative City’ to develop an integrated municipal
Civil society has been instrumental in culture-led urban cultural development policy and a sustainable cultural de-
development. A growing number of associations now
velopment programme.
reinvest in public spaces to valorize dilapidated historical
The project was conducted using an innovative
assets, build a collective memory and claim public usage entrepreneurial model. Although initiated by local economic
of urban spaces for cultural activities. The Freedom Park actors, it received strong support from local authorities, which
in Lagos (Nigeria) is among the examples. Based on the materialized into a formal public-private partnership, the
initial proposal from the cultural collective ‘Creative Council for the Promotion of Local Economy. The Council
Intelligence Agency’, this former penal complex was stands as a service for cooperation and the promotion of local
regenerated in 2009 into a public space hosting an enterprises, economic actors and local authorities of the city.
independence memorial. This community-led movement It also provides advisory consulting and training to local
is generally supported by local authorities, in their authorities and enterprises on its socio-economic and cultural
attempt to increase access to public spaces, as many development programme. The model tapped into the Maaya
green areas were gobbled up by urban pressures.
process, an ethical concept grounded in Malian culture based
on the principles of serving and involving the community,
building confidence and reinforcing relationships, mobilizing
A new generation of cultural entrepreneurs is reshaping local resources to foster autonomy and sustainability, and
Africa’s urban landscapes. The most distinctive ensuring coherence with local values.
innovations in urban conservation and regeneration have
been initiated by informed, engaged and concerned
36
STUdY AREA
The Chicala township, Luanda (Angola)

© David Stanley/Flickr.com*
citizens who often ‘had the means for their vision’. For
instance, renowned and socially involved architects and
entrepreneurs have raised awareness among public
Sensitizing a global audience to these [informal
authorities and the general public of the importance of settlements] as possessing formal histories, meriting
preserving cultural assets for sustainable urban considered engagement with regard to their histories,
development. This proactive leadership from civil society practices, and political life, presents a project which is
proves even more successful and sustainable when necessitated in the context of urban revitalization,
partnerships are formalized with public authorities. identifying social capital, or revitalization through
tourism. […] It provides an opportunity to revitalize the
C A S E ST U DY 5 CÔTE
D’IVOIRE very concept of dynamic urban heritage.
Accra (Ghana)
TOGO
A self-organized street Lindsay M. Weiss, Department of Anthropology, Stanford University
festival changes the image

of the city’s slums GHANA
The Chale Wote Street Art Festival with the multiple dimensions of urban informality, and the
was initiated by cultural practitioners in the Jamestown ways they intersect with notions of memory, identity and
neighbourhood, located in Ga Mashie, an early fishing set- the ‘right to the city’, is therefore pivotal.
tlement and former colonial quarter now categorized as a
slum. Organized over two days, it brings together a wide
GOVERNANCE AND POLICY
range of traditional and contemporary cultural practices in
FRAMEWORKS FOR URBAN
public spaces. National and international artists are invited
CONSERVATION AND REGENERATION
to create murals, installations and performances by drawing
upon local culture. The festival brings art into democratic,
equitable and accessible areas, such as streets, pavements,
lanes, car parks or unused buildings. The festival drew Sub-Saharan Africa is a very diverse and fragmented area,
20,000 people in 2015 and helped transform the perception which challenges regional cooperation. Its 49 countries
of these areas into a community full of cultural heritage and are the product of different colonial projects, various
artistic potential. cultural and linguistic backgrounds and contrasted
Source: Arterial Network, report for Study Area 1 physical environments. Recent initiatives have sought to
address this disconnect by fostering regional cultural
These culture-based initiatives directly contribute to the exchanges. The African World Heritage Fund was created
regeneration of marginalized areas. By providing spaces in 2010 as a UNESCO Category 2 Centre to support
for innovation, cross-cultural interaction and civic re- African countries in preserving their cultural and natural
engagement, they contribute to changing the image of heritage. Several pan-African initiatives also provide
depreciated neighbourhoods and enhance the urban platforms for exchanging best practices and promoting
environment through collaborations between artists or the cultural dimension of development, including the
cultural activists and local inhabitants. Community-based Observatory of Cultural Policies in Africa, the Arterial
festivals tap into the community’s existing public space and Network and the African Arts institute.
social dynamics to revitalize dilapidated neighbourhoods
and support local communities re-engaging with the city Although there are no official regional policies on culture,
from an artistic perspective (see Case Study 82). several milestones should be underlined. In 1976, the
African Cultural Charter stated that each African State
Culture-based regeneration projects can also encourage must commit to developing national cultural policies. In
new approaches to informal areas and practices. Although 2006, the Charter for African Cultural Renaissance
it remains largely neglected in urban conservation and outlined a pan-African agenda for culture. In 2008, the
regeneration perspectives, the role of informality should Plan of Action on the Cultural and Creative Industries in
be further explored, as informal practices are a key Africa was adopted by the African Union, in cooperation
survival mechanism for a majority of urban dwellers. with UNESCO. Thus, regional institutions could play a
Based on their dynamic urban culture and socio-political significant role in providing guidelines to foster integrated
history, informal settlements should be better policies and strengthen the relevant legal apparatus.
understood in terms of historical development. The ability
to unlock the rich cultural heritage value of these areas Legal and policy frameworks related to culture and
might well be a decisive factor for forging meaningful heritage have essentially drawn on UNESCO normative
urban transformations. A more concerted engagement instruments, which have pointed to the means by which
37
culture could be integrated into sustainable development.

The implementation of the 1972 Convention Concerning
the Protection of the World Cultural and Natural
Heritage has helped to update existing legal and
institutional systems towards more integrated practices.
The promotion of the 2011 Recommendation on the
Historic Urban Landscape through a series of workshops
in Swahili coastal cities in 2011 and 2012 fostered a
reflection on urban conservation. The scope of heritage
has been extended through the concepts promoted by
the 2003 Convention for the Safeguarding of the
Intangible Cultural Heritage. The 2005 Convention on
the Protection and Promotion of the diversity of Cultural
Expressions helped to emphasize the role of civil societies implementation is undertaken at local level. Centralized
as well as the role of cultural products and creative planning persists in many countries and continues to stifle
markets; dakar (Senegal) and Brazzaville (Congo) were the ability of local authorities to implement context-
recently designated as the two first members of the specific strategies. While decentralization has been
UNESCO Creative Cities Network in the region. implemented in most African countries during the past
decade, local capacity is still constrained by the lack of
Heritage seems to be the most recognized aspect of financial and fiscal resources, the multiplicity of actors
cultural policies in the region. In most countries, the legal involved and the lack of clarity on their respective
and institutional systems pertaining to heritage competencies. Laws and regulations regarding culture
protection stem from pre-independence times. Although and heritage grant a prominent role to the central
these frameworks have been updated in the following government, with local governments acting as a relay for
decades, they remain focused on monumental structures, central administrations. Very few cities have city-based
particularly colonial sites. Conservation strategies tend departments with a cultural mandate. In urban affairs,
to treat historic urban attributes as insulated elements, their level of autonomy varies according to national
disregarding their social, economic and cultural decentralization frameworks. City-based planning by-
relationship with the urban context. laws can potentially shape culture-based development.
Frameworks related to the cultural industries are more Local governance is also hampered by severe capacity
recent and unevenly developed. They focus on various gaps. Municipalities are faced with a shortage of
priorities, including the development of cultural architects and urban planners to enforce building control
infrastructure (Nigeria) and the economic contribution of regulations and restoration projects. Training is mostly
cultural industries (Namibia). In some countries, the provided by Western experts on an ad hoc basis,
cultural industries are considered as a key area for contributing to the domination of Western paradigms.
development and incorporated in the national planning However, several regional training institutions have been
frameworks and policies as in Malawi, in Burkina Faso developed, such as the School of African Heritage (Porto-
with its national Strategy for Accelerated Growth and Novo, Benin) and the African Programme in Museum and
Sustainable development, and in Uganda with the Heritage Studies, University of the Western Cape
national Poverty Eradication Action Plan. Cultural (Bellville, South Africa). Partnerships with universities are
diversity is often emphasized as a priority for post- established through on-the-job workshops. Regional
colonial nation-building, as in Zimbabwe and Kenya. programmes have also supported capacity-building,
including Africa 2009, which trained heritage
Culture and heritage tend to be sidelined in most urban professionals between 1999 and 2009 (notably involving
frameworks, although heritage is sometimes mentioned UNESCO and ICCROM) and the Cultural Heritage and
as an important urban asset, as seen in Ghana’s and Local development Programme, which trained local
Kenya’s urban legislation, or in Cape Town (South Africa) authorities between 2009 and 2012 (supported by the
which has implemented a city-based culture and heritage EU and the International Association of Francophone
policy. These frameworks were recently developed as Mayors, AIMF).
part of the rapid urbanization processes. Facing multiple
agendas, urban policies have strong connections to social Urban conservation and regeneration is supported to a
development, poverty reduction and economic growth. large extent by international cooperation, including
They can also encompass environmental challenges in multilateral agencies, bilateral cooperation (involving
particularly vulnerable areas such as Saint-Louis (Senegal) France, Belgium, Germany and Sweden, for example) and
or prioritize the agricultural sector. other donors (including organizations such as Africalia,
the Aga Khan development Network, the Ford
Urban conservation and regeneration is still largely Foundation, the Goethe Institute and the French
guided by national policies, although the practical Institute). Most partners provide funding on a project-by-
38
STUdY AREA
S
Antananarivo (Madagascar)
© Dudarev Mikhail/Shutterstock.com*
project basis and do not support organizational costs, and

U
CASE STUDY 6 KENYA
are thus more accessible to larger institutions. Moreover,

RWANDA
Zanzibar (United Republic of Tanzania) BURUNDI
funding conditions may be detrimental to local culture Bridging spatial and social UNITED REPUBLIC
and have been criticized, in some cases, for replicating divisions through inclusive ATIC OF TANZANIA
colonial imperatives, although partners are now

R C OF
NGO
planning
increasingly supporting South-South linkages. UNESCO ZAMBIA
recognizes Africa as one of its two global priorities across M

Zanzibar has for centuries served as a centre for international
all policy areas and funding mechanisms. The UNESCO trade, thanks to its location at the crossroads of Africa, the
World Heritage Fund is a key player, with about 25% of its Indian subcontinent and the Persian Gulf. Its capital, Zanz-
budget committed to the region3 since 1978, as well as the ibar City, which is home to 200,000 people, has historically
UNESCO International Fund for Cultural diversity (IFCd). been divided between Stone Town, the city’s historic centre
and a UNESCO World Heritage property since 2000, and the
City-to-city partnerships have also been instrumental in
more modern, sprawling Ng’ambo (literally ‘The Other Side’).
supporting local authorities. In World Heritage cities, most
These physical divisions have been reinforced by decades of
government policy and planning. Bridging the gap between
local authorities have leveraged international support for these two areas through the implementation of UNESCO’s
heritage inventory or management plans. In Saint-Louis 2011 Recommendation on the Historic Urban Landscape
(Senegal), its inventory was conducted as part of a cooperative was the goal of the pilot project Ng’ambo Tuitakayo (or ‘the
agreement with the city of Lille (France) and its architecture Ng’ambo we want’), initiated by the Department of Rural
school (see Case Study 94). In Antananarivo (Madagascar), and Urban Planning (DoURP) in 2013.
the Institute for the City’s Professions was set up with support
from the Île de France region (France) to promote innovative Emphasizing the values of connectivity, vibrancy and inclu-
tools in urban regeneration and conduct inventory, siveness, the project fostered the engagement of the local
restoration and awareness-raising activities. population. Interviews with residents revealed widespread
unhappiness with the lack of baraza (semi-public spaces es-
Innovative policies have been developed to integrate
sential to Swahili culture) in modern developments, as well
as a general lack of public spaces. Many local actors also
culture into urban development. In Mali, cultural priorities held a negative opinion of conservation, seeing it as an ob-
were incorporated into several local authorities’ stacle to economic growth. The project managed to create
municipal plans, as part of a pilot project supported by the a dialogue which linked citizen concerns over dwindling
AIMF. Cape Town (South Africa) has developed a city- public spaces with the benefits of a culture-led development
level policy dedicated to boosting the cultural economy, strategy, shifting local attitudes in favour of preserving the
facilitating cultural spaces and coordinating the cultural city’s historic fabric. A new partnership was created with the
sector. In Saint-Louis (Senegal), the Heritage House Dutch Government, the City of Amsterdam and the NGO
provides technical advice on conservation policies. Some African Architecture Matters. The two cities have begun work
countries set up management entities for World Heritage on a new local area plan for Ng’ambo, as well as planning
properties, such as cultural missions in Mali. guidelines for heritage-based regeneration.
TOWARDS CULTURE-BASED URBAN to Western discourses, which often rely on a distorted

DEVELOPMENT: CHALLENGES AND understanding of African cities as simply the inheritance
EMERGING SOLUTIONS of colonial eras. The resulting ‘sanitized’ visions of urban
development and modernization often conflict with local
Urban strategies have historically been disconnected from cultural practices and the needs of communities. In larger
the social and cultural realities of African cities. cities, these ‘imported’ models have also collided with
Approaches to urban planning have often been confined development interests, raising land prices and contributing
to a shift away from traditional land ownership systems.
Urban policies have thus tended to overlook the needs
3
See: http://whc.unesco.org/en/intassistance
39
of informal settlements and have given priority to This renewed approach to urban planning calls for a dis-
private developments or gated communities, thereby tinctly African vision of urban heritage, one that moves
exacerbating social exclusion and segregation. beyond the built environment to incorporate intangible
practices as well. As many prominent sites of African
A stronger focus on culture could stimulate a shift liberation struggles are located in cities, this connection
towards more inclusive urban models. Sustained should be explored within urban heritage interventions.
community practices and livelihoods should be Bringing contested colonial and slavery heritage into con-
considered necessary for viable urban development, as versation with liberation narratives could help forge a
well as for community empowerment and fostering a shared commitment to inclusive and dynamic conserva-
sense of belonging. In the context of African cities marked tion. Cultural systems embedded in informal settlements
by inequalities, poverty and recently urbanized – as well should be recognized, analysed and reinvested in order to
as rapidly growing – populations, a more careful study of stimulate community-based development and deepen
traditional systems – notably those linked to food our understanding of the ways in which these multi-
security, resource management and conflict management cultural spaces have engendered resource-sharing and
– and a better understanding of the reasons for their survival mechanisms. Beyond prescriptive or normative
survival or decay in urban environments, could open new approaches, conservation practices should give more
possibilities for urban planning and help address the consideration to community needs.
challenge of the provision of urban services. This could
include research on the weredas in Addis Ababa (Ethiopia), developing sustainable urban policies requires
the smallest administrative unit in the city, or the prioritizing the collection of knowledge and
fokonolona in Antananarivo (Madagascar), which is the documentation on urban heritage. The findings of the
traditional basis of social-cultural cohesion, and the ways survey highlighted the paucity of information available on
in which local authorities integrate this aspect within their African urban heritage, which is in part due to the lack
programmes. of reporting and heritage inventorying. When they do
exist, heritage registers often prioritize colonial sites. A
Urban conservation and regeneration should thus be
seen as a process of restorative justice, ensuring that CASE STUDY 7
systemic injustices are addressed, including those which Hometown associations (Cameroon):
have a cultural basis. In that sense, cultural and linking rural and urban communities for
educational values linked with urban heritage can help culture and development
build social cohesion by giving rise to spaces which permit
engagement with the past, particularly in the post- ‘Hometown associations’ have been established in African
colonial context. Enhancing community spaces which cities for more than a century and have become traditional
embody social and cultural values – such as markets – can social and cultural institutions for migrant populations mov-
foster meaningful social interactions and contribute to a ing from rural to urban areas. Typically, they provide practical
better quality of life. A stronger recognition of these support to members, including a rotating credit scheme,
inhabited spaces within renewed urban models would
death benefits and burial assistance, and offer a network of
people willing to assist with temporary housing or admin-
allow for an explicit focus on the people. istrative matters. They are increasingly taking on an ex-
panded role as ‘culture and development’ organizations,
Urban conservation strategies should, however, avoid an providing financial, material, technical or political support
exclusively economic focus in favour of a more holistic for development programmes in their members’ home village,
approach that maintains urban heritage as a public good district or locality.
and takes into account other factors of human well-being.
The excessive commercialization of shared heritage Hometown associations are sometimes criticized for promoting
resources has often nurtured gentrification processes. local and ethnic identities – seen as a threat to nation-building
Although the involvement of the private sector is needed, – or for reinforcing existing patterns of inequality or exclusion
the encroachment of corporate interests on urban (when, for example, membership is limited to men or certain
heritage through over-branding, mass tourism and land
social categories). However, fine-grained research with
hometown associations in Cameroon’s cities counters such
speculation needs to be regulated through stronger
critiques, with substantial evidence of their contribution to
urban governance and community involvement. Greater improving the quality of life of their members, as well as their
attention should also be paid to the replicability of role as a social safety net helping to ease individual transitions
conservation skills within the larger economic framework. from rural to urban life. They offer an opportunity for civic
In Mombasa (Kenya), for example, the revitalization of participation that is not necessarily bound up with larger
artisans’ skills for conservation activities has also partisan political alignments and provide a sense of affirmation
stimulated the manufacturing of furniture for the tourism to counterbalance feelings of alienation, particularly when
industry. internal migrants are perceived negatively.
Prepared by Frank Proschan
40
STUdY AREA
Lamu (Kenya)
© rguha/Flickr.com*
more systematic cataloguing of urban heritage assets PERSPECTIVE 1

should be conducted. Beyond built heritage, local URBAN CONCEPTS AND CULTURAL HERITAGE: ISSUES AND
knowledge systems, cultural practices and values need to CHALLENGES OF SUSTAINABILITY IN DEVELOPING AFRICAN COUNTRIES
be documented and analysed in order to reach a thorough Hamady Bocoum Director General, Musée des civilisations noires, Dakar (Senegal)
understanding of urban realities. Participatory
Cultural development is probably the about by urbanization, cities should avoid
inventory processes should be encouraged, gathering greatest challenge for the sustainability to ‘copying and pasting’ and anticipate
representatives of national and local authorities, urban of our cities. A culture of sustainable de- constraints related to climate change, in
practitioners, NGOs and community groups. In this regard, velopment implies the existence of a order to be intelligent, convivial, pleasant
new mobile technologies and open-source mapping tools genuine policy that promotes diversity to live in and, above all, sustainable.
promise to offer cost-effective solutions, while also helping and good practices. For developing coun-
to address the difficulty of accessing data. tries, culture can become the foundation Cultural resilience should also be explored
of sustainable development within the in slums surrounding urban centres,
framework of an urbanization that concerns which are sorely lacking cultural facilities.
Creating an enabling environment for community people and their environment. These communities are in fact carriers of
participation is also imperative. The appropriation of values, which can be altered or even de-
urban heritage by local communities is dependent on The preservation of historic urban centres stroyed by their new places of residence.
their capacity to engage with and benefit from urban and places that bear witness to urban Cultural or solidarity associations linked
conservation. Practices of collaboration – notably history is imperative both for ancient to places of origin can be powerful tools
through participatory heritage inventorying – have led to cities, prior to Atlantic trade and colo- for the promotion of cultural diversity.
the better management of urban sites and, in turn, a
nization, and colonial cities. Everywhere
historic centres are threatened by the Efforts need to be made to favour heritage
greater sense of ownership. A conscious effort to increase urban explosion. Cities inscribed as World inventorying in our cities for it to be
the capacity of local communities to participate in urban Heritage properties are particular cases. taken into account in urban planning
regeneration is necessary, through strategies such as Due to their status they require greater and development. Whether they be sites,
increasing funding and training opportunities or mediation in order for their safeguarding places of memory or living cultural
facilitating the use of public spaces. Involving the younger to be an opportunity and not a constraint. expressions, the city should be open to
generation is essential, particularly given the ‘youth bulge’
A compromise needs to be reached all. The expertise of professionals, par-
in African cities. The stronger inclusion of the diaspora
between the legitimate aspirations of ticularly in earthen architecture, from
the people for greater well-being and across the continent should also be con-
would also open up new perspectives. conservation requirements. sidered in reflections on future urban
life. Only then will every city be able to
Cultural governance is a unique opportunity for a genuine This reflection on the role of culture develop its own identity, which will be-
revival of relations between public authorities and applies equally to new cities. Whether come a source of attraction and promotion
citizens. Trust-building and nurturing intra-community they are linked to post-independence of citizenship rooted in a culture of sus-
structures are critical for sustaining genuinely inclusive
national construction or have been brought tainability.
conservation and regeneration efforts, particularly in a
context where resource scarcity often reignites conflict. Territorial governance should be strengthened to lay the
Community engagement can be supported through basis for culture-based urban policies. decentralization
innovative methodologies, delving into participatory processes should be pursued to allow local authorities to
measures such as consultation, shared decision-making take the lead in urban conservation and regeneration
or joint conservation management. Where local systems efforts. The legal apparatus pertaining to urban
exist to ensure participation, they should be amplified and conservation should also be modernized with a view to
considered as valuable tools for local authorities to broaden the scope of heritage. The involvement of the
promote citizenship and active dialogue. In Saint-Louis private sector should be encouraged and framed through
(Senegal), for example, the neighbourhood councils act as more operational funding mechanisms, including tax
a relay between the municipality and the inhabitants incentives as well as the creation of certifications or labels
to conduct sensitization campaigns and disseminate for cultural products. Culture and heritage should be
information on conservation regulations. Stronger integrated into other urban development agendas
engagement with the private sector though private-public (including those of public works and economic
partnerships could also help to catalyse civil society development), to further address funding gaps by linking
initiatives and promote local enterprises. culture to other revenue streams.
41
Coordinator of the regional study: THE ARAB LEAGUE

EDUCATIONAL, CULTURAL AND SCIENTIFIC ORGANIZATION
(ALECSO)
The Arab League Educational, Cultural and Scientific Organization

(ALECSO) is a specialized agency, established in 1970 to support
educational, cultural and scientific programmes and policies within the
Arab world. Based in Tunis (Tunisia), the institution includes 22 Member
States. ALECSO fosters the inclusion of culture in urban development
strategies in the region and joins forces with UNESCO to promote a
New Urban Agenda based on a culturally-sensitive approach to urban
planning, conservation and regeneration. In that perspective, ALECSO
is planning to host and develop an observatory of historic cities in the
Arab countries, with a view to enhance identification, safeguarding
and monitoring of urban heritage.
42
STUdy area
Algeria, Bahrain, Egypt, Iraq, Jordan, Kuwait, Lebanon, Libya,
Mauritania, Morocco, Oman, Palestine, Qatar, Saudi Arabia, Sudan,
Syrian Arab Republic, Tunisia, United Arab Emirates, Yemen.
HIGHLIGHTS
While the advent of Islam in the seventh century marked
the emergence of the region’s urban culture, the Ottoman
Empire strongly shaped the form and spatial layout of many
of the cities in the Arab world from the sixteenth to the
twentieth centuries.
Massive urbanization after 1950 profoundly transformed
urban societies and fuelled social crises, while urban
landscapes were radically reshaped in most of the Arab world.
Urban heritage is now increasingly recognized as an asset
for cities in the Maghreb and Mashriq, and more recently in
the Arabian Peninsula.
Although it decayed due to demographic and social
transformations, the ‘medina’, a dense, mixed-use urban
model specific to Arab cities, offers lessons for the future
sustainability of cities.
The practice of joint family tenancy of historic buildings,
together with insufficient legal systems, presents a major
obstacle to urban conservation and regeneration.
The necessity for better-integrated strategies for urban
conservation and regeneration, with a particular emphasis
on housing needs, is becoming increasingly urgent.
Urban heritage preservation is emerging as a key issue within
many civil society movements, serving as a rallying point for
community engagement, although truly participative urban
governance is far from being achieved.
43
Cairo (Egypt)
© Jason Benz Bennee/Shutterstock.com*
THE FLOURISHING OF URBAN architecture and the arts, the imprint of which is visible in
CIVILIZATION IN THE ARAB WORLD many of the region’s cities, among them Cairo (Egypt) and
Tripoli (Libya). Up to the fourteenth century, the Arab
Between the shores of the Atlantic and the valley of cities were major intellectual and cultural centres, whose
the Indus stretches a vast territory of approximately rise was actively supported by the power of the state and
13 million km2, where some 515 million people live. fed by the vitality of trade. As recorded at the time by the
Located between sea and desert, this region encompasses historian, philosopher and diplomat Ibn Khaldun, it was
the Mediterranean and three inland seas. Within this the state that founded the city, assembled and protected
semi-arid to arid zone, several cultures have grown up its population, built enclosed spaces and mosques and
over the course of several thousand years, including managed the economy. The contrast with Western cities
notably Arab, Turkish and Persian, set apart from each – bearing the marks of Roman law and the emerging
other by diverse ethnolinguistic communities. secularism that favoured technical innovation – was
great, and the first signs of decline began to appear from
The region’s 19 countries form 4 relatively homogenous the fourteenth century onwards.
blocs: the Maghreb, the Nile Valley, the Fertile Crescent
and the Arabian Peninsula. The region covering the Nile
S
CASE STUDY 8
Valley and the Fertile Crescent is usually referred to as Fez (Morocco) MOROCCO
the Mashriq. Islam and the Arabic language have left Crafts bring a vital breath
their imprint on these people and societies, and are a of air to the struggling ALGERIA
unifying factor in the region. Yet while this sense of unity medina
is real and, on occasion, asserted, the region is also
MAURITANIA
characterized by diversity. As a meeting point between

MALI
Crafts are both a vital economic activity and an essential

peoples, it is home to many minorities, whose recognition factor in the historic urban landscape of the medina, often
often triggers conflicts in recently created modern states, described as a factory open to the skies. In 1996, the
with borders that are sometimes disputed. ADER/UNESCO survey counted 1,276 intramural craftsmen
from over 43 trades, which provided a source of income for
The Maghreb and the Mashriq form a coherent
75% of the population. In order to support this sector, some
ten fonduks have been restored, polluting activities were re-
geographical and political entity. This was the territory
moved elsewhere and help was given to regulate the sector.
where the Arab conquerors first gave expression to urban However, business is still precarious. Many trades are dis-
culture. Its ancient cities form the fundamental urban appearing, demand is seasonal and erratic, some of the
underpinnings that to some extent still determine how equipment is worn and productivity is low. Thus, the situa-
present-day cities are evolving. Morocco, Algeria, Tunisia, tion needs to be monitored.
Libya, Egypt, Palestine, Lebanon and the Syrian Arab Source: ALECSO, report for Study Area 2
Republic thus formed a relatively unified area, though
cultural and trading exchanges were still limited during
that period. The Ottoman period gave cities their architectural form
and spatial layout. From 1516 to 1918, Ottoman rule
The countries of the Fertile Crescent and the Arabian covered almost the entire Arab world, apart from
Peninsula have been influenced by particular determining Morocco and a handful of cities that were conquered
factors. Trade, nomadic and pilgrim routes have fashioned later. The architectural and urbanizing innovations of the
the region and structured its population patterns. Jordan Empire therefore had a lasting influence on the
and Iraq, together with Lebanon, Palestine and the Syrian morphology of these cities. The medinas were confirmed
Arab Republic, constitute a geographical subset, with as the influential capitals of this vast territory. The
strong links to Kuwait and Saudi Arabia, with an Ottoman reform movement of the early nineteenth
environment marked by deserts, sharing pastoralism, century (the Tanzimat) and Western influences on town
nomadism and Bedouinism. This geographical grouping planning (the Haussmann model in particular) brought
also includes cities such as Baghdad (Iraq), Jeddah (Saudi about radical transformations; roadways and public parks
Arabia) and Sana’a (Yemen), which have played a were created in the capital cities (notably in Cairo and
predominant part in the region’s history. In the other Gulf Tunis), henceforth extending beyond their ramparts.
countries, with the exception of Bahrain, cities are Trade had the effect of concentrating the urban centres
ultramodern metropolises of recent origin, which have in coastal areas, though some historic cities were still
supplanted the small clusters built around coastal trade, found in the provinces further inland.
fishing and the pearl industry.
The era of colonies, protectorates and mandates in the
The advent of Islam in the seventh century marked the first half of the twentieth century wrought profound
emergence of urban culture. Its propagation through changes on the pre-capitalist and pre-industrial urban
Arab conquests went hand-in-hand with the flourishing structures. The process of urban planning begun in the
of cities, shaped by successive civilizations. The Mamluk Ottoman period was systematically pursued during this
era (1250–1517) thus saw a remarkable flourishing of time. The building of new roads and new urban areas put
44
STUdY AREA
Fez (Morocco)
© Éditions Gelbart*
the new and old towns in a juxtaposition that brought out unemployment are fuelling the urban crisis and social
their differences. At the same time, under the influence unrest. National regional development schemes have been
of conservation policies from mainland France in drawn up to redress the balance in urban development in
particular, legal frameworks were put in place for the favour of the inland provinces, but they have failed to
protection of the medinas. The spatial imbalance between reduce inequalities. These territorial imbalances have also
the coastal areas and the interior, which had begun under played a part in the rise in fundamentalism.
Ottoman rule, accelerated under the influence of the
colonial economy, which entrenched the flow of economic The political fragmentation of the region is a reflection of
activities towards the coast. ancient fault lines. From the time of the early caliphate,
the major source of discord – the Fitna – has been the
From the 1950s onwards, the region saw rapid urban fundamental division of Islam into Sunnis, Shiites and
expansion that radically changed both societies and Kharijites. Out of this original conflict grew the main
territories. In the Maghreb and, to a lesser extent, the strands of political and religious movements within Islam,
Mashriq, independence suddenly freed up a huge stock of and a debate over the secularization of state policy
housing, creating a massive inflow of people into the major that continues to this day. The expansion of religious
cities. Tunisia thus went from a level of urbanization of fundamentalism has contributed to the gradual
approximately 40% in the mid-1950s to 67% in 2014 internationalization of the conflict beyond the Arab world.
(United Nations, 2014). A lack of housing led to an upsurge
in precarious, makeshift dwellings and the development Recent conflicts have had a profound impact on the urban
of unplanned sites on the edges of cities. deteriorating space in parts of the Arab world. Heritage, including urban
built heritage, poverty and the decline in crafts, combined heritage, has become the object and focus of clashes, and
with an overall lack of investment, contributed to the instances of deliberate destruction are increasing, as
marginalization of the historic cities within the witnessed in recent years in the Syrian Arab Republic and
metropolitan areas. Iraq. In Baghdad (Iraq), the war has given rise to intense
land speculation and driven the fragmentation and
In the Arabian Peninsula, the exploitation of oil in the privatization of public space (see Case Study 63). In Tripoli
1930s stimulated an unprecedented wave of urbanization (Libya), chronic insecurity is preventing investments
and brought about profound changes. Financial and hampering any attempts at urban regeneration. The
globalization has catapulted societies still governed by destruction brought about by a combination of conflict
tradition into the modern world. A new urban landscape and failure of governance makes an appraisal of
was designed from scratch by international architects, heritage documentation and the conditions for
urban planners and engineers, and built by multinational reconstruction imperative. This must, above all, be
companies. dominated by Anglo-American urbanism, this handled pragmatically, through concrete steps that help
model is characterized by vertical architecture, with a bring about an improvement in the social situation and
network of highways and very strict zoning according to generate economic benefits.
function, distinguishing business centres, shopping
centres and residential areas. Urban heritage is, in
general, disregarded. With the exception of Yemen, the BETWEEN RECOGNITION AND
countries of the peninsula are now among the most MARGINALIZATION: URBAN HERITAGE IN
urbanized in the world. The urban population of countries QUESTION
in the Arabian Peninsula ranges from 77% in Oman to
99% in Qatar (United Nations, 2014). Urbanization is A unique urban feature born of Islamic civilization, the
largely fuelled by transnational migration, with male medina is the basic model of the Arab town. Its urban
expatriate workers representing 94.4 % of the workforce space is governed by several principles and also by the
in Qatar in 2010 and 96.1 % in 2008 in the United Arab Koranic notion of the haram, which defines what is holy or
Emirates (UN Habitat, 2012). forbidden and results in enclosed spaces. This principle of
close proximity determines the urban morphology and
The economic and territorial contrast between the coast the typical habitat, a house with windows opening onto a
and the interior is a fundamental factor, in particular in the courtyard. The space outside is part of the sovereign’s
Maghreb and the Mashriq. Rapid urbanization means that domain under Muslim law. A network of souks structured
populations are concentrated on the coast, to the detriment the town into socially homogenous residential and
of the inland areas, which are being abandoned. Housing commercial neighbourhoods. The great mosque stood in
shortages, uncontrolled urbanization and the explosion in the centre of this complex of workshops and traders.
45
PERSPECTIVE 2 materials. The vernacular architecture of the desert

UNESCO EXPERIENCES IN SAFEGUARDING WORLD HERITAGE environment, especially in the Arabian Peninsula, mostly
CITIES IN THE ARAB REGION dates from the eighteenth and nineteenth centuries and
Mounir Bouchenaki Director, Arab Regional Centre for World Heritage (Bahrain)
illustrates a unique heritage adapted to the environment.
demographic and social movements have resulted in the

In the past few years, across practically Between 1988 and 1989, within the
all regions of the world, greater attention framework of the UNESCO International
has been focused on the challenges of Campaign for Safeguard of the Medina gradual downgrading of the medina. Between 1830 and
safeguarding not only historic monuments, of Fez, the Moroccan authorities started 1930, population growth was slow and urbanization
but the environment in which they are a new project, consisting of the preparation gradual. Little by little, the function of the medinas was
located – in other words, old quarters, of a global study for the preservation of eroded as the new towns came into their own. From 1930
historic cities and their historic urban what in fact concerns a living city – a to 1980, population growth picked up, fuelled by the
exodus from the rural areas. The wealthy families left the
landscapes. city which continues to play an important
medinas for the residential suburbs. Occupied by recently
economic and social role and, at the
The wealth of cultural, artistic, archae- same time, has retained very high cultural
ological and urban heritage of the and spiritual value in the Kingdom since urbanized peasant families, the medinas became
countries of the Arab region has been its founding in the eighth century. These progressively poorer and more marginalized, with the
recognized by donors, who have made efforts were extended principally by the courtyard houses deteriorating and becoming
financial and technical contributions Moroccan authorities and, combined with overpopulated. Between 1980 and 2010, the medinas
to heritage safeguarding projects in the increased interest in international emptied out, with the population moving to other
neighbourhoods or to sites on the outskirts of town. Since
the region. It is in this regard that UNESCO circles, it became a flagship campaign
has endeavoured to put this vision into by the end of the twentieth century.
practice, allying the restoration of mon- 2010, social deprivation has increased in the medinas,
uments with the revitalization of historic The Moroccan authorities have provided now occupied by the most vulnerable sectors of the
centres. In the 1980s and 1990s, in- several million dirhams to launch a number population. More and more buildings are threatened with
ternational safeguarding campaigns of regeneration projects. These projects decay.
were launched in cities, notably in the link the restoration of monuments and
Arab region, such as the Medina of the stabilization of infrastructure to the These demographic and social phenomena are common
to most cities in the region, each following its specific
Fez in Morocco. The UNESCO strategy restructuring of the crafts quarter and re-
to develop and implement programmes viving traditional techniques. Indeed, this
of regeneration of urban cultural her- successful campaign was much more pattern. In Fez (Morocco), the population rose from
itage in these two countries, with the than a mere embellishment operation. 65,000 inhabitants in 1926 to 173,802 in 1982,1 before
support of the World Bank, was part As is often the case in many cities of falling back to 90,917 in 2014.2 The descent of the
of a larger process of awareness and World Heritage status, it raises socio- medinas into slum conditions sometimes goes hand-in-
knowledge about historic centres which economic questions over the development hand with the emergence of pockets of wealth in mainly
started in Europe in the mid-twentieth of sites and the redefinition of the archi- impoverished urban areas, with second homes for
foreigners, usually retired, and guest houses. In the
century. tectural and urban functions of buildings.
Arabian Peninsula, this social and spatial segregation
during the period of postcolonial transition, with its takes the form of the appearance of ultramodern building
debates on national identity, the values of this urban developments or gated communities in the outlying areas,
heritage gradually came to be appreciated. occupied by expatriate executives and locals, along with
the impoverishment of the old neighbourhoods, inhabited
New urban areas were built in the nineteenth and by migrant workers.
twentieth centuries, at the time of the European colonies,
protectorates and mandates. They were placed in a The courtyard house is gradually becoming discredited as
contrasting juxtaposition to the medinas, thus expressing an ideal form of dwelling. Up to the 1950s, it embodied
unequal social relationships. The principles underlying the lifestyle and aesthetic aspirations of city dwellers in
their development were set forth by General Lyautey, the the Maghreb and the Mashriq; in towns that had not yet
Resident General of the French Protectorate in Morocco, spread out, it suited the dimensions of the extended
who took the view that ‘the new European town must be family and the way of life of the inhabitants, who formed
separate from the indigenous one’. The medina and the social relationships in the neighbourhood, or houma. After
new town together constituted the historic city, the field independence, social upheavals threw that model into
of application for the cultural strategy of urban question. The middle classes adopted the model of the
regeneration and upgrading of the older habitat. nuclear family. Increasing numbers of women went to
work and children to school. The problems of mobility in
Other human establishments in the region include rural districts that were not served by public transport imposed
settlements (villages, hamlets, douars, ksour, ghorfas, severe limitations. The courtyard house no longer fulfilled
casbahs, troglodyte dwellings in the desert steppes, the criteria of functionality and comfort. Thus, poorer
colonial farms, etc.), the nomadic and pastoralist families gradually replaced the middle classes.
territories (encampments, textile architecture, etc.), the
oasis territories (dwellings made from local materials,
fired or unfired, or wood) and temporary slum dwellings 1
See: Recensement Général de la Population et de l’Habitat (RGPH),
or shanty-towns (gourbivilles) constructed from discarded Maroc, at http://www.hcp.ma
2
See: www.hcp.ma/downloads/RGPH-2014_t17441.html
46
STUdY AREA
Damascus (Syrian Arab Republic)

The practice of joint ownership, together with insufficient CONSERVATION AND URBAN
legal systems, presents a major obstacle to the REGENERATION: THE CHALLENGE OF
regeneration of medinas throughout the Arab world. The GOVERNANCE
involvement of two legal systems – Muslim law and, since
the end of the nineteenth century, modern law – makes Throughout the whole region, the system of urban
the situation with regard to land and property extremely governance is highly centralized. Urban and heritage
complex. Most family properties in the medina are jointly policies are usually decided at the national level by central
owned, with the number of heirs steadily increasing, administrations or their offshoots at local level (such as
which means ownership does not change hands, the wilaya in the Maghreb). The culture ministries,
properties deteriorate and their value falls. A legal founded after independence, are often marginalized by
solution must therefore be found to permit a way out of their low budget levels; they face competition from the
joint ownership and unblock the property market. That ministries of town planning, the environment and regional
being said, putting together a legal and financial development, which act jointly at the national and
framework for the sale of residential property is proving regional level, sometimes through urban agencies, as seen
especially sensitive. The ministries responsible for land in Morocco. Religious institutions carry great weight but
matters are often powerless in the face of unplanned are not technically in a position to protect and conserve
urbanization and the degeneration of the older habitat, urban heritage.
the more so when they avoid resorting to expropriation.
Local authorities are marginalized, despite the fact that
C A S E ST U DY 9 the process of decentralization has begun in most
Urban workshops: places for urban innovation countries. Cities are still largely dependent on transfers
in the Maghreb from the central government for their economic
resources. Urban projects are often carried out by state
Between 1967 and 1975, several novel entities emerged in departments or agencies (such as the powerful
Tunisia, Algeria and Morocco which made their mark on development agencies in Morocco), NGOs and those
urban planning. The Urbanism Workshop and the Associa- involved in cooperation, or even by former government
tion for the Safeguarding of the Tunis medina were set up figures, as seen in Lebanon. The local authorities do
in 1967, followed shortly afterwards by the Casbah and launch initiatives on a communal or intercommunal scale,
Comedor workshop in Algiers (Algeria) and another work- but they struggle to have an impact on urban policy. Some
shop in Fez (Morocco). These were ad hoc professional bod- innovative systems, such as the local development
corporations in Morocco, offer a glimpse of a new form of
ies, run by multidisciplinary teams drawn from the academic
and professional spheres, including sociologists, economists,
local governance.
geographers, architects, town planners, landscapers and en-
gineers, which acted in support of the authorities. Charged
with designing and implementing programmes for the con- Governance is often fragmented among a number of
servation and urban regeneration of the medina, these players, acting at the central, regional and local levels, and
workshops helped to overhaul the approach to safeguard- following procedures that are hierarchical and mutually
ing. Based on in-depth knowledge garnered from socio- impenetrable. The lack of coordination and vagueness of
economic surveys and current architectural and planning the terms of reference leads to frequent conflicts and
practice, they operated across the whole urban fabric confusion over legal and institutional responsibilities. For
through the renovation of the habitat, the regeneration of example, 15 actors coming from 5 institutions are
public areas and the revival of craftsmanship. As they were involved in the conservation and urban regeneration of
Cairo. The joint technical committee for the Algiers
autonomous and free to express their views, these structures
Casbah involves 24 technical directorates from 13
secured real political buy-in for urban regeneration policies,
sometimes backed by the authority of an emblematic mayor,
as in the case of Tunis. Some of them went on to contribute ministries.
to the creation of rules on town planning. These experiences
enabled the historic cities to position themselves as places The regulatory framework for conservation and urban
of institutional and operational innovation. However, those regeneration partly reflects Western models, primarily
experiments did not continue, due to the lack of political drawn from the French and British systems. In both the
commitment and the failings in urban governance. Maghreb and the Mashriq, the legal, regulatory and
Source: ALECSO, report for Study Area 2 administrative bases – formulated during the time of the
colonies, protectorates and mandates and updated after
47
independence – mostly follow the French system. They technical and administrative bodies do not always have
lay down, among other things, the rules for classification the means to exercise effective control. The creation of
and protection and the terms of reference of the ad hoc bodies – such as the Cairo Heritage Preservation
conservation services. The urban planning systems General Administration set up in 2008 to protect historic
generally provide for the delimitation of heritage areas, Cairo – can offer an effective solution, but they cannot
but without laying down any overall system for planning take the place in the long term of political commitment.
their safeguarding. By contrast, in the Arabian The ‘major projects’ that are becoming increasingly
Peninsula, the legal framework reflects the British widespread may reflect a strategic vision in terms of
influence. The tools of urban planning and development conservation and urban regeneration, but they carry the
are not prescriptive in nature but take the form of risk of spreading urban practices that depart from the
recommendations. The first laws for the protection of texts and laws on town planning. Some of the
heritage were enacted between the 1960s and 1980s architectural projects carried out by international
under the aegis of the culture ministries. A new architects have turned out to be overblown, out of
generation of laws and regulations have appeared in the context or remote from the needs of the population, in
past decade, combining the protection of heritage with particular the very poor.
economic development and the development of tourism,
and providing for the creation of new national agencies. Urban conservation and regeneration are still largely
Across all these countries, the legislative framework funded by the state, in particular by sovereign funds
offers inadequate protection for creative freedom, while or the urban planning or interior ministries. Effective
the mechanisms for the funding of culture are deficient; mechanisms have been put in place in the context of urban
these are major constraints to the development of a workshops, notably in Tunis (where a special account has
creative sector capable of making an active contribution been set up for the restoration of the built heritage in
to urban development. private ownership) but these are not the norm. There is
still insufficient involvement of private sector actors in
conservation and urban regeneration, though steps are
CASE STUDY 10 being taken to change this. Tax exemption schemes for
The local development corporations: an heritage-related projects are almost non-existent.
innovative form of local governance (Morocco)
UNESCO’s normative framework and actions have had a
In Morocco, the local authorities’ charter, amended in 2009, real impact on creating a structure and raising awareness
authorizes the creation of local development corporations of the protection of the historic centres. The appeal
(SDL), designed as commercial businesses in the form of lim- launched by the director-General of UNESCO in 1980
ited companies, whose capital is held by one or more local for the safeguarding of the medinas and the inscription of
authorities. This novel development provided a way of some of them on the World Heritage List provided a
sidestepping the rigours of public law and setting up a more boost to the processes of conservation, strengthening the
professional kind of management. Since the wages they system of governance and raising funds. The large-scale
inventorying of urban heritage implemented from 2003
offer are not subject to the public administration scales, SDLs
to 2006 in Sana’a (Yemen) by UNESCO, together with the
are able to attract skilled staff. They can also set up public-
private partnerships to undertake conservation and urban
regeneration work. Their field of competence is very broad, GTZ, laid the basis for the conservation plan that is now
as can be seen from the Casablanca heritage corporation, being updated, a decade later. The Action Plan for the
set up in 2015, which coordinates the implementation of Safeguarding of the Cultural Heritage of the Old City of
the heritage component of the 2015-2020 Development Jerusalem welcomed by the World Heritage Committee
Plan for Greater Casablanca and carries out the actual work in 2007 also included surveys of the built heritage, pilot
of restoration, regeneration and improvement. projects aimed at improving living conditions for local
Source: ALECSO, report for Study Area 2 inhabitants, as well the elaboration of a rehabilitation
manual for residents. The Urban Regeneration Project
for Historic Cairo conducted by the Government of Egypt
and UNESCO from 2010 to 2014 has promoted a
This system of governance now needs to be modernized comprehensive approach to urban conservation and
and adapted. Generally speaking, regulations are geared regeneration and included notably inventory and
towards monuments and archaeology and tend to mapping, capacity-building of national and local
exclude urban heritage (including modern heritage), institutions and the identification of priority projects
though some of the texts, such as those of Morocco, aimed at revitalizing public spaces and socio-economic
contain the building blocks for addressing the urban activities.
issue. The systems for heritage conservation and urban
planning are often mutually impermeable. This makes it Other examples of multilateral cooperation (notably with
impossible to monitor building functions and usages in the European Union, World Bank or UNdP) and bilateral
such a way as to revitalize old cities. In some countries, it cooperation, especially with France, Germany and Italy,
can be difficult to enforce existing regulations, as the as well as private sector bodies or non-profit-making
48
STUdY AREA
standards of construction and hygiene and break with the

Moroccan style of architecture’ (Arrif, 1994), formed the
ideological basis of this modernist approach.
On that basis, most medinas were affected by urban

renewal operations in the decades following
independence. designed to improve access and ease the
flow of traffic, these major roads often broke up socially
and culturally functional units of heritage, but failed to
improve the spatial organization. In Fez (Morocco), the
opening up of the medina and the covering up of the oued
from the 1960s onwards damaged the exceptional
character of that garden city. In Cairo (Egypt), the
motorway built over Al-Azhar Street in the 1980s severly
damaged the historic centre without solving the problems
of accessibility, which were addressed two decades later
by a tunnel following the same course. In Kuwait City
(Kuwait), the ancient city wall was destroyed in 1951 when
the first ring road was built, followed by others that
Ghadames (Libya)
brought further destruction in their wake.
© Reza/Webistan*
Revisiting the urban model of the medina could open up
institutions (in particular the Aga Khan Foundation), have a way forward. The medina in practice offers the vital
enabled major projects to be undertaken for the advantage of diversity. The urban morphology and the
conservation and regeneration of historic city centres. typology of the habitat make it possible to have social,
These projects have encompassed both building generational and functional diversity. As a dense and
restoration, support for the craft sector and housing aid. compact city, the medina is also a pedestrianized area that
They have stimulated the emergence of a global approach limits pollution. This subtle urban ecosystem could offer
to the city as a whole and facilitated practices based on lessons for the future sustainability of cities. However,
participation. They have also stimulated research into this vision needs to be reinterpreted to reflect present-
urban and heritage matters (together with French day sociocultural conditions, through a more finely-tuned
institutes such as Urbama and the Institute for the Near understanding of architectural and urban models
East – IFPO) and encouraged regional exchanges (as seen combining tradition with modernity.
with the Euromed heritage system). That being said, these
projects vary in their capacity to generate sustainable The challenge is to evolve the paradigms of spatial and urban
mechanisms. Some of them are ‘parachuted in’ with planning in the Arab world, going beyond the regulatory
insufficient regard for the local context, or mechanisms procedures, to take into account the major principles of
are put in place by donors that are not compatible with sustainable development that are present in the medinas. In
the realities of urban life. a general sense, there needs to be an in-depth review of the
notion of the sustainable city in the Arab world. Such a
review must take on board the current thinking that shapes
THE PLACE OF CULTURE IN THE ARAB contemporary cities and take advantage of the broad range
CITY: DEBATES AND PERSPECTIVES of research conducted on historicity and urban culture,
architecture and town planning. This may enlighten
Modernist theories tend to discount the medina as an ongoing reflections on the impact of rapid urbanization
urban model. Considered as vernacular, ‘unintelligent’ and post-colonial acculturation.
forms of architecture, the medinas are said to be ‘no
longer viable as they do not allow for fluidity of movement debates on Orientalism, a critical view of the fascination
or access to each building’ (Tribillon, 2009). These – for oriental cities that has captured the European
deliberately provocative – theories invite us to engage in imagination since the eighteenth century, can also shed
a clear-headed reflection about the future of the medinas: fresh light on the subject of urban culture. That
what should be done with the medina, which lies at the movement, inspired by the world of literature, has
heart of the constantly expanding metropolis-town? influenced both social behaviour and styles of
Should it be built over, circumvented, carved into pieces architecture, giving broad currency to the imagery of the
or radically opened up? All these solutions have been oriental city, with its palaces and residences, its souks,
proposed or attempted at different times. The Ecochard caravanserais and monumental mosques. That heritage
doctrine, which asserts the right to ‘cut roads into the has been re-examined as part of the thinking of the
medina, open it up to motor traffic, apply modern political and intellectual classes on the emancipation of
49
the Arabs and the recapturing of their cultural identities Heritage is emerging as a key issue of urban citizenship in
as part of the decolonization process. the Arab world. The rapid pace of the destruction of urban
heritage has prompted the emergence of civil society
initiatives. With the backing of social media, these
S
movements contribute to the debate on the place of

ISRAEL
CASE STUDY 11
heritage in urban development, highlight the need to

JORDAN
Cairo (Egypt)
Claims of the emergence of a preserve ways of life that are specific to the Arab city, and
SAUDI
ARABIA
‘right to heritage’ call on citizens to participate in the work of promoting

EGYPT
their living environment. Urban heritage can, therefore,

be a real force for social harmony against a background
The revolution of January 2011 re-
sulted in the destruction, degradation
and looting of vital components of Cairo’s historic heritage. of economic, social and cultural restructuring. However,
In response to that state of affairs, which they regarded as such initiatives have not as yet been able to influence
attributable to weak institutional governance, civil society urban practices in the direction of truly participative
movements for the protection and management of cultural governance. The proliferation of initiatives and non-profit
heritage have sprung up, relying on social networks. They movements can sometimes result in fragmentation or
claim that citizens have the right to play an active part in even situations of conflict.
the protection of their heritage and living environment. The
‘Save Cairo’ initiative, designed to protect the city’s urban In the Arabian Peninsula, the value of urban heritage has
heritage, organizes sit-ins in front of buildings threatened recently been recognized. Long neglected in favour of the
rapid modernization of the urban metropolises, heritage
with destruction, as well as campaigning publicly. While it
is now seen as an economic resource in terms of tourism.
has not always been successful in averting destruction, it
has drawn attention to the issue of conserving urban her-
itage. Other kinds of action are being taken on a neighbour- The cultural wealth it offers is taking its place as an
hood scale. The Heliopolis heritage initiative is documenting essential factor in promoting the international reputation
the architectural heritage of the twentieth century through of ‘world cities’. This resurgence in interest responds to
photography competitions, guided tours and campaigns di- the dictates of globalization and also reflects the will to
rected at the authorities. The Ana min Al-Zaher (‘I’m from Al uphold national identities, against highly cosmopolitan
Zaher’) initiative prompted the state to renovate and reopen urban backdrops that are characterized by high levels of
an architectural treasure, the Al Sakakini Palace. The Athar transnational migration.
Lina (‘the monument is ours’) initiative in Al-Khalifa Street
is advocating for citizen participation in heritage protection,
enabling the interests of local residents to be better ad-
URBAN CONSERVATION AND
REGENERATION: TOWARDS A REGIONAL
dressed. Participatory workshops involving both the local
ACTION PLAN
residents and the authorities were set up in 2012. The com-
mitment has been followed up with the creation of a school
of heritage and a number of restoration activities (medieval
domes, twentieth-century buildings, etc.). The defence of the Both the authorities and civil society alike are showing a
citizens’ interests has since broadened to include the regen- growing awareness of the importance of urban heritage.
eration of public areas and improvement in the management The numerous protection, safeguarding and restoration
of household waste collection. projects carried out in recent decades have led to the fine-
Source: ALECSO, report for Study Area 2 tuning of the methods used. However, the vision is still a
fragile one. The work that is done is rarely integrated into
a true conservation and urban regeneration plan.
This Western view of the Orient has generated a body Innovative projects are often conducted outside the
of knowledge that could usefully be revisited. From the normal administrative procedures or are supported by
eighteenth century onwards, scientific missions by international cooperation.
European architects in the Maghreb and the Mashriq
produced reviews, drawings, surveys and inventories Improving the efficiency of urban conservation and
that contributed to the recognition of vernacular regeneration governance should be a priority. Institu-
architecture and Islamic art. The nineteenth-century tional responsibilities and administrative prerogatives
European painter-explorers also provided visual must be clarified and simplified in order to improve the
testimonies of pre-colonial Arab societies, Islamic arts, coordination between national, regional and local contri-
architectural know-how and ways of life. That body of butions. Real decentralization of competences and the
knowledge provides irreplaceable first-hand evidence strengthening of project management by local authorities
of the urban civilizations of the Arab world, which could are also essential preconditions. Civil society participa-
inspire not only contemporary initiatives in conservation tion must be organized and supported, as part of a
and urban regeneration but also cultural exchanges, long-term programme.
while being aware of the limitations and biases in such
sources. An integrated strategy for conservation and urban
regeneration must be put in place. Based on socio-
economic realities and the needs of the local residents, it
50
STUdY AREA
Sana'a (Yemen)
must give priority to the upgrading of the older habitat PERSPECTIVE 3

and to socio-economic revitalization, through regenera- PROMOTING A RECIPROCAL RELATIONSHIP BETWEEN CULTURAL
tion of the souks, fondouks and caravanserais, and the HERITAGE AND TOURISM
HRH Prince Sultan Bin Salman Bin Abdulaziz Al Saud Chairman of the Board of Directors
organization and regulation of commercial and artisan and President of the Saudi Commission for Tourism and National Heritage (Kingdom of Saudi Arabia)
activities and tourism. The legal and regulatory system
needs to be reviewed to better adapt it to the urban scale. The connections between tourism and there are few other employment op-
A land and property strategy must be drawn up to make culture continue unimpeded and, in fact, portunities.
land ownership more secure (simplifying the registration are multiplying as more and more cul-
process and restricting joint ownership) and generate tural heritage sites are incorporated as All of the above can be delivered through
dynamic urban regeneration. Another important dimen- key features of tourism worldwide. Sus- the development of a tourism sector that
sion is traffic regulation (limiting the use of cars and tainable tourism is based on the idea is built on each country’s unique and
making the area accessible to pedestrians).S
that no one should be denied the op- varied cultural heritage. That is why the
portunity to benefit from tourism, whether Saudi Government has made substantive
I AEL
IRAQ
as a participant or supplier of goods or investment in cultural heritage sites by
C A S E ST U DY 12 JORDAN
KUWAIT
services. implementing a number of national ini-
Jeddah (Saudi Arabia) tiatives, projects and public-private part-
A public-private partnership PT
Manama
Cultural heritage provides a unique and nerships to preserve and promote sites
SAUDI ARABIA
to revitalize the historic city valuable opportunity to further that goal with an emphasis on the role of local
as itO allows many to participate and communities to achieve balanced and
As a town on the caravan routes and a
SUDAN benefit from it. It also draws society's sustainable development. At the pinnacle
attention to its heritage, and helps main- of these national initiatives is the Custodian
Red Sea port, Jeddah has an original ERITREA YEMEN
tain cultural craft traditions and skills. of the Two Holy Mosques Initiative for
and distinctive urban heritage: the spatial arrangement
E
of the
To that end, increased investment in Cultural Heritage. This important com-
medina and the design of its tower-houses, mostly dating from cultural heritage areas and products is prehensive initiative strives to protect,
the nineteenth century, make for a balance between residen- needed, together with providing a gen- present and promote our national cultural
tial and public areas and facilitate social living. Starting in the uine interest and care in preserving and heritage with the aim of making it an in-
1960s, the rapid urban expansion and the exodus of the tra- presenting the site or product. In other tegral part of our life and daily experience.
ditional inhabitants to the outlying districts led to the impov- words, commercialism needs to be tem-
erishment of the medina and the decline of its social and pered with consideration for the tradition. We are proud of our national heritage
economic functions in favour of the fast expanding new town. In addition, such sites provide increased and its positive role in our life and
Part of the urban heritage was destroyed by urbanization and economic opportunity, particularly in national economy, and we look forward
soaring land prices. At the end of the 1970s, the city’s mayor rural areas and often in locations where to the future with anticipation and hope.
called for an end to the destruction and put in place a munic-
ipal safeguarding plan. In the 1980s, the Saudi authorities
drew up an inventory and a detailed survey of the ancient city, The setting up of an urban heritage observatory in the
Arab countries would encourage the building of an
which led to the drafting of the first piece of protection legis-
integrated conservation and regeneration strategy, while
lation; 500 houses of significant value were upgraded or re-
stored and the public areas were redeveloped.
circumventing the roadblocks which are often
From 2006 onwards, the municipality, the Saudi state (through encountered in the region. Such a tool would be in line
the Saudi Tourism and Antiquities Commission) and the private with the draft Charter for the Conservation and
sector have been working together towards a new plan for development of the Urban Heritage in the Arab
the protection of the ancient city, intended to facilitate its eco- Countries, drawn up in 2004 by the Arab Ministers
nomic revitalization through tourism. The programme rests on responsible for culture, antiquities and tourism, which
a legal mechanism enabling ownership rights in the old city underlined notably the importance of safeguarding the
to be exchanged for regulatory privileges in the new town, urban heritage and the need for a consistent method of
thus helping to counter speculative pressures. These efforts, approach that will integrate it within economic, social
which reflect the state’s new strategy of favouring urban her- and cultural development. ALECSO is planning to host
this observatory and support its establishment.3 The
itage, resulted in the city’s inscription on the World Heritage
List in 2014. The programme strengthens the role of the an-
cient city within the metropolitan area and enhances the value observatory will monitor innovative experiences to
of urban heritage in the eyes of public opinion. It has, how- inform a plan of action and a common methodology on
ever, encouraged a process of gentrification leading to the conservation and urban regeneration policies. It will
eviction of the poorer foreign workers who previously occu- address, among other things, political commitment,
pied the historic houses.
Source: ALECSO, report for Study Area 2 3
See: http://www.alecso.org/site/2016-03-02-13-19-31.html
51
PERSPECTIVE 4
THE POWER OF THE PAST
Ismaïl Serageldin Director, Library of Alexandria (Egypt)
Cities are where the future is invented. But cities are also where underpins our contemporary identities. Cities are living organisms,
the legacy of the past lives on, to inspire dreams and to stimulate and they must renew themselves, just as they must grow to accom-
new thinking. In the Arab Region, our cities bear witness to the modate successive generations and the demands of new technologies
oldest civilizations on earth, whether in Egypt or Mesopotamia, and new lifestyles. But they must do it in a manner that allows the
and we have strong claims to many of the oldest continuously inhabitants to retain their sense of belonging and pride in their
settled cities in the world, from Jericho (Palestine) to Damascus unique legacy as they strive to design their own futures.
(Syrian Arab Republic). Other cities stand as reminders of the glory
of the great civilizations that flourished in these lands over millennia. What are the forces threatening it?
From Tunisia’s Carthage to Lebanon’s Byblos, from Egypt’s Alexandria
to Libya’s Leptis Magna, there is hardly a city that does not hold a Monuments, urban spaces and the unique urban character of our
place of honour in the roll call of human civilization. historic cities are under threat from many socio-economic forces
that seek short-term profit from expropriation and gentrification
Furthermore, the glory days of the Muslim and predominantly while cutting through the urban tissue of the old sectors of our
Arab civilization that flourished in these lands for over a thousand growing cities. In addition, complex ownership patterns and long-
years from the seventh to the seventeenth centuries, saw the torch neglected infrastructure make upgrading arrangements difficult
of learning and pluralism held high from Andalusia in Spain to (but far from impossible). Recently, the vandalism and destruction
Iraq, and from central Asia to Sudan. The urban tissue of these of our heritage by extremist groups must be considered among the
cities, the successive layers of their built environment, are a veritable worst risks confronted by our heritage. Here it is their wilful
palimpsest of their rich and glorious history. It is not just the insistence on trying to destroy that heritage as part of their efforts
individual monuments that remain as landmarks in our urban to re-write the historical narrative that would justify their particular
landscape that are deserving of protection. It is the very atmosphere ideology. We have seen this from the destruction in Palmyra (Syrian
of historic areas, the essence of historic urban character that still Arab Republic) to the damage to artefacts in the Islamic Arts
marks these cities. Our urban cultural heritage, tangible and intangible, Museum in Cairo (Egypt). Faced with this kind of ideological
is a major contributor to this sense of place and historic continuity onslaught, asserting our heritage is an immediate necessity.
that contributes to forming contemporary cultural identities.
For whom are we trying to save it?
Today, all these elements – monuments, historic urban tissue and
the intangible cultural legacy of the past heritage – are at risk. All It is essential to underline that the people for whom this heritage
need to be saved. So let us start with a few questions: has to be saved are the inhabitants themselves. The contributions
•What are we trying to save? of that cultural heritage – tangible and intangible – to the sense of
•Why are we trying to save it? identity and a sense of place for local inhabitants are paramount.
•What are the forces threatening it? Without that heritage we would all be lacking in the construction
•For whom are we trying to save it? of our contemporary identities, and lacking in our abilities to build
•How will we be able to save it? on the past to invent the future.
The answers to these questions give us the justification for a How will we be able to save it?
formal policy of urban heritage conservation and development, as
well as a workable definition of some of the key parameters to be Saving urban heritage not only involves regulating desirable
observed in implementation. activities and banning destructive activities, but the entire community
living in these surroundings. The community must value the
What are we trying to save? changes being introduced, from upgrading the infrastructure to
the adaptive reuse of various buildings. Approaches should not
The urban cultural heritage includes certain physical monuments dislodge the inhabitants, who in many cases are poor, in order to
and urban spaces that have historical significance, either as promote gentrification of the neighbourhoods. Rather, reinvigorating
examples of certain periods of our history or spaces associated the local communities and ensuring their improved well-being and
with particular events of significance to the population in defining direct participation in the benefits of such conservation efforts
its roots and its antecedents. However, beyond certain monuments must be at the core of our concerns.
and spaces, there exists in many cities an older historic core that
has retained characteristics of the urban tissue defined by scale, Indeed, one can go further and underline that heritage-based
streetscape, heights, volumes and the pattern of voids and solids urban revitalization can be the engine for the growth of local
of the sides of the streetscape (usually narrow and meandering). cultural and creative industries, as well as a magnet for additional
In addition, there is mixed land use, diverse street activities (crafts sustainable tourism, which can help generate employment and
or shops or services) intermixed with residential and commercial stimulate local development. Museums, cultural centres and open
services. Density and transport modes (mostly pedestrian) are also public spaces can be used as civic spaces for dialogue and social
characteristic of such historic cores. While there may be no buildings inclusion, helping to reduce friction and foster cohesion.
of particular architectural distinction or historic importance, it is the
overall character of the historic core that deserves to be preserved. The value of protecting urban cultural heritage is enormous. Such
efforts have shown that the financial returns far exceed the costs in
Why are we trying to save it? almost every case. But above all, it is not the monetary value that
one can place on such investments; it is that we are harnessing the
By safeguarding urban texture and character, as well as important power of the past to help invent the future. We are ensuring the
monuments and spaces, we are also safeguarding our identities, our continued dynamism of our cities, where the heritage of yesterday
way of life and the part of our collective memory that is the wellspring provides both the touchstones of our memory and the wellsprings
of artistic creativity and the foundation of the historical narrative that of our imagination. For any society, it is a truly priceless asset.
52
STUdY AREA
Doha (Qatar)
© Attila JANDI/Shutterstock.com*
institutional governance, the legal and regulatory system,

participatory planning, cultural innovation and the
At the present time of a resurgence in Islamic beliefs, the
encouragement of creativity, as well as financing and question of the Islamic city has once again come to the fore.
operational procedures. Operating as a think tank, the In many parts of the Arab world, and especially in Saudi Arabia
observatory will serve to provide expertise and advice to and the Persian Gulf, urban planners with a newfound respect
decision-makers and professionals in the Arab world and for the great achievements of the past are searching for ways to
mobilize the necessary technical and professional reproduce in today’s cities some of the patterns of city building
competences in the member countries. that have been identified as Islamic. They have been influenced,
whether wittingly or not, by a body of literature produced by
Western Orientalists purporting to describe the essence of the
C A S E ST U DY 13 S
Islamic city.
Tunis (Tunisia) TUNISIA
Janet Abu-Lughod, sociologist
A social habitat project in the ALGERIA
medina: the regeneration of the LIBYA
oukalas
In the decades following independence, the medina of Tunis Capacity-building in the fields of conservation and urban
experienced a phenomenon of impoverishment. Rural fam- regeneration is an essential task in the region. While
ilies came to live in the traditional houses that had been some countries, such as Morocco, have a training system
abandoned by their original occupants, renting by the room. for architecture and town planning, this is often compart-
Known as oukalas – a term previously used only for short- mentalized within the various teaching disciplines (archi-
stay hotels – these dwellings rapidly became overcrowded tecture, town planning, urban geography, engineering
and run down. Deteriorating living conditions and the risk and heritage-related skills). There is a very low level of
of collapse led the municipality to embark on a social and regional academic exchanges, which are often carried out
building policy to restore the heritage and reduce poverty. through the intermediary of third-party countries.
Human resources needs are at critical levels, especially in
Three thousand tenant households were urgently evacuated
from buildings threatened with collapse. Two thousand of
those households were rehoused in the medina or at the countries in conflict or post-conflict situations, such as
periphery in housing belonging to the municipality, which Iraq, which have seen their education systems collapse
they were able to buy on terms adapted to their economic and skills leave the country. A special effort needs to be
status. One thousand households were temporarily remade with these countries to set up degree courses for
housed while the work was carried out, prior to returning architects, urban planners and landscape architects. The
to their former homes. A restoration programme was under- priority is to train the trainers and validate training
taken to consolidate the structures and slow down the pro- courses in heritage skills in order to meet sustainable
cess of deterioration. For privately-owned heritage, a credit urban development goals.
line at a subsidized interest rate was put in place to encour-
age the owners to upgrade the buildings. Failing that, the
municipality took over from absent or recalcitrant owners
and carried out emergency work, recovering its costs in the
form of rent. For public heritage, the dwellings were thinned
out and brought up to habitable standards. Certain buildings
of architectural or historical interest were restored before
being reassigned for socio-cultural uses. This process con-
cerning the oukalas, undertaken from the 1990s onwards,
has not been replicated and still serves as an example today.
Source: ALECSO, report for Study Area 2
53
Coordinator of the regional study: UNIVERSITY IUAV OF VENICE
Established in 1926 as the Istituto Universitario di Architettura di

Venezia (University Institute of Architecture of Venice), the institute
was renamed Università IUAV di Venezia (University IUAV of Venice) in
2001. Today, IUAV is a world-renowned educational institution and
research centre with specific expertise in the fields of urban
conservation, urban design and urban landscape management. Since
2008 it has hosted the UNESCO Chair in Social and Spatial Inclusion of
International Migrants – Urban Policies and Practices. In 2016 a new
UNESCO Chair in Heritage and Urban Regeneration was created.
Through its academic and operational experience, the University has

acquired a thorough knowledge of European practices of urban
conservation; over the last 30 years it has developed partnerships with
130 European universities and restoration schools. It is the home of
one of the largest libraries dedicated to architecture and urban
planning in Europe.
54
STUdy area
Albania, Andorra, Austria, Belgium, Bosnia and Herzegovina,
Bulgaria, Croatia, Cyprus, Czech Republic, Denmark, Estonia,
Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Israel,
Italy, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Monaco,
Montenegro, Netherlands, Norway, Poland, Portugal, Republic of
Moldova, Romania, San Marino, Serbia, Slovakia, Slovenia, Spain,
Sweden, Switzerland, The former Yugoslav Republic of Macedonia,
Turkey, United Kingdom of Great Britain and Northern Ireland.
HIGHLIGHTS
Stemming from its classical and medieval history, Europe
has long been endowed with a very developed urban system,
resulting from a layering process, whereby pre-existing
structures were continuously transformed or reused.
The methodological foundations of urban conservation
and regeneration were first laid in the 1960s, followed by
a gradual extension of the territorial and conceptual scope
of urban heritage.
European cities have undergone a widespread process of
conservation and regeneration, and today represent one
of the largest ensembles of preserved urban heritage in
the world.
Urban conservation and regeneration in Europe is largely

led and funded by national and local public authorities and
is closely tied to European Union-sponsored programmes.
Culture has taken on a growing role in urban regeneration
strategies, particularly those targeting the revitalization of
public spaces and the rehabilitation of declining industrial
areas.
The practice of urban conservation has unlocked new

approaches and instruments to achieve urban and
environmental sustainability, emphasizing local knowledge,
creativity and well-being.
Mitigating ‘museumification’ and gentrification, while also
promoting sustainable tourism patterns, remain the most
Venice (Italy) pressing issues in preserving the authenticity of historic areas.
© lapas77/Shutterstock.com*
55
EUROPEAN URBANIZATION: the Renaissance inspired a new vision of conservation.

A CONTINUOUS PROCESS OF Innovative building techniques and urban patterns were
STRATIFICATION produced and disseminated throughout the continent.
Successive artistic movements from the fifteenth to the
Urban development in Europe is characterized by a nineteenth centuries, including the Renaissance, Baroque
layering process, whereby pre-existing structures and and Neo-classical styles, left a major imprint on European
patterns, based on the initial topography, were cities, leading to the spread of the street grid framework
continuously transformed or reused in successive and monumental open spaces. These patterns also
historical phases. The long-term presence of dominant fostered sub-regional and national identities, which
civilizations and exchanges between the Northern and permeated into urban development practices up until the
Mediterranean populations have produced a great twentieth century. For example, geometric schemes
diversity of cities, reflecting a multiplicity of building became emblematic of northern cities and urban
techniques, materials and cultural and artistic influences. boulevards were often created over demolished city walls.
Alternating eras of unification and fragmentation among
various political powers – including empires, kingdoms, The industrial revolution represented a major shift in the
nation states, local and regional realms, municipalities, city understanding and practice of urban development. Major
states and city ports – also strongly influenced the infrastructure works reflected new standards for housing,
emergence of cities. transportation and hygiene. Larger scales, as well as new
urban functions such as railroad stations and department
Ancient civilizations have profoundly shaped contemporary stores, were imposed upon the original urban layout,
European cities. While the contributions of the civilizations radically transforming the organization of cities. Among
which preceded the Greek, such as the Etruscan, the Celtic the examples is the transformation of Paris (France) from
and the Cretan, are not particularly visible in the urban 1852 to 1970, begun under the leadership of Baron
structures of most contemporary cities, the Greek model of Haussmann. These interventions halted the historic
polis, or city states built around citizenship, laid the basis for stratification process, forever altering the existing urban
many key urban functions. Their temples, agora, theatres fabric. While the dense and ‘porous cities’ of the past
and defensive walls can be considered as the original mingled public and private spaces and mixed different
building blocks of European cities, marking the starting social groups and functions, modern cities became
point of a process of stratification. The Roman and characterized by a separation of functions and rationality.
Byzantine empires built on this earlier Greek model to This rationale, based on modernist theories, provided the
develop territories based on public functions, which underlying framework for many urban interventions in the
included markets, baths, forums, military camps and region up until the 1970s.
imperial roads. These urban forms were widely
disseminated throughout the continent. As early as the In the post-Second World War period, urbanization
mid-sixth century, the foundations of European urban processes intensified. Rural-urban migration was a strong
settlements were in place, particularly in areas located contributor to urban growth in the 1950s and 1960s.
between the Mediterranean and the Rhine and danube decolonization processes, beginning in the 1960s and
rivers. This fundamental urban frame set the stage for continuing until the end of the Cold War in 1989, also
subsequent growth and densification. increased migration within Europe, as well as from other
parts of the world. Many historic areas, now considered
Throughout the Middle Ages, these ancient structures obsolete or unhealthy, fell into decline. The growing use of
were intensely reused, although new building types, such private cars also drastically reshaped cities. Urban
as castles, citadels and fortified cities, were also created. peripheries expanded to host growing populations,
Economic exchanges gradually intensified with the fostering new lifestyles while increasing social inequalities.
expansion of trade beginning in the eleventh century. New Urban renovation processes created the basis of a new
urban functions emerged, including public markets, civic economy, in some cases undermining local, small-scale
buildings and squares, which marked urban landscapes as economies.
of the twelfth century. This era was characterized by
organic development patterns built over previous Roman In recent decades, recurrent economic crises have created
structures and topography. In southern Europe, this new urban challenges. Globalization processes and
stratification process also included Islamic structures; in competition from emerging countries have contributed to
many cases existing urban structures were adapted to the decline of industrial areas. Unemployment has grown
new social organizations, with residential buildings in many countries, necessitating renewed economic and
redesigned for family groups and cathedrals transformed urban regeneration strategies. The environmental crisis
into mosques. has fostered the emergence of renewable energy
solutions and new approaches to territorial development,
The Renaissance, beginning in the late fourteenth century, which emphasize the reuse of existing urban
further stimulated innovation. Characterized by the infrastructure rather than new construction. Migration
recovery of the past and the reinterpretation of Antiquity, from conflict-stricken countries has intensified over the
56
STUdY AREA
Major urban transformation works of Baron Haussmann

on the Avenue de l’Opéra, Paris (France)
© Charles Marville, 1862. Source: gallica.bnf.fr - Ecole nationale
des ponts et chaussées*
past decade and is now a key item on the political agenda. Europe is now almost completely urbanized, with differing
In this context, culture-based urban regeneration levels of density. The population of Europe stands at an
approaches can be seen as particularly relevant to solving estimated 750 million people, including 500 million
these contemporary issues. European Union citizens. Three overlapping networks of
cities make up the territorial framework of this ‘urban
continuum’. ‘Capitals and metropolises’ are home to
C A S E ST U DY 14
between 1 and 10 million inhabitants. These political,
Coimbra (Portugal) cultural and economic hubs stand as models of urban
A new vision for a historic city regeneration for other cities through their outstanding
PORTUGAL history of urban transformation. Some of these cities
Coimbra, a city of over 100,000 people lo- SPAIN now belong to the class of so-called global cities, with a
cated along the Mondego River in the cen- high concentration of international financial and
communication activities. With 100,000 to 1 million
tre of Portugal, has a long, rich history as
inhabitants, medium-sized cities are often characterized
an administrative and educational centre.
The city served as Portugal’s first capital
from 1129 to 1255 and later became home to the magnifi- by functional specialization, multi-ethnicity and a vibrant
cent University of Coimbra, recognized as a UNESCO World cultural and social life. These local and national hubs often
Heritage property in 2013. Yet even before this designation, exert political, cultural or economic influence, hosting, for
the Coimbra City Council had spearheaded a series of efforts instance, important industrial activities or ports. Most of
meant to retain the city’s historic character and restore its them have significant historic areas, museum institutions
natural environment. Between 1999 and 2011, numerous and robust creative and cultural sectors. The third category,
historic buildings, such as São Francisco Convent, the Sé small towns, comprises a dense, uniformly distributed
Nova (the New Cathedral), Santa Cruz Monastery, Manga network, defined by their human scale and a natural
Cloister and, more recently, Santa Clara-a-Velha Monastery, connection with the surrounding environment. In southern
Europe, many of these small towns began as ancient
were restored to their former glory. The inauguration of
settlements founded during Greek or Roman times.
Mondego Green Park in 2004 went a long way towards the
revitalization of the river basin, while ongoing efforts to
transfer old hospital facilities to the outskirts of the city have
URBAN HERITAGE: A EUROPEAN CONCEPT

already done much to ease congestion in the historic centre.
Other projects, such as the development and restoration of
Casa da Escrita (The House of Writing), the Cerca de São AT THE HEART OF URBAN IDENTITIES
Bernardo Theatre and the Gil Vicente Theatre, as well as the
creation of the Municipal Theatre Workshop, have further Europe was one of the first regions where the notion
enhanced Coimbra’s cultural offerings. of heritage historically developed and flourished.
Throughout its history, European cities were continuously
Despite these efforts, much work still remains in Coimbra’s rebuilt through the reuse or adaptation of previous
structures in order to meet new social and economic
historic centre, particularly in light of the ageing of the local
needs. The reinterpretation of the past was also
population and the depopulation of the town centre. Struc-
tures on Sofia Street and certain city centre housing blocks are
in desperate need of repair, while a limited supply of hotels instrumental in legitimizing political powers, consolidating
and lack of integrated tourist programmes has hurt tourism national unity and reaffirming or revitalizing national
in the city. However, a new vision for the future of Coimbra is identities. After the French Revolution, culture and
beginning to emerge, one which relies on the city’s core heritage became an essential component of civic
strengths; city officials recently branded Coimbra as a ‘city of education, which aimed to build autonomous and equal
health’ and ‘city of knowledge’. With regards to culture, this citizens. Making knowledge of the past available to the
strategy entails: creating a sense of continuity between Coim- public became a priority and large public museums
bra’s historic sites by ensuring regular access and opening emerged towards the end of the eighteenth century to
hours; restoring and giving new roles to buildings on Sofia support this democratization process.
Street and in the town centre; and creating a specific cultural
Awareness of the importance of heritage protection grew
agenda for the historical centre, with tourist itineraries and
themed walks. Implementing these strategies will strengthen
Coimbra’s cultural identity – promoting a sustainable tourism in the second half of the nineteenth century, stimulated by
economy and preserving its centuries-old heritage. radical urban transformations linked with the Industrial
Source: Coimbra University, report for Study Area 3 Revolution. The destruction of large parts of the urban
fabric spurred a strong reaction from civil society – both
57
The Oslo Opera House, Oslo (Norway)

© Andrey Emelyanenko/Shutterstock.com*
from residents and the intellectual elite. This opposition gone through successful regeneration programmes
to modernist theories started as early as the mid- including the restoration of built structures, the
nineteenth century and intensified in the 1950s. The improvement of housing conditions and the revitalization
study of heritage therefore developed alongside urban of commercial activities. Historic buildings and areas are
development thinking, as the impact of modernist planning still used for public activities and are therefore
stimulated a reflection on safeguarding priorities. continuously adapted to new economic and social needs.
Protection instruments were gradually developed – Urban heritage is also a major driver of the cultural
initially based on the tradition of archeological studies – tourism sector, which represents a significant portion of
and formed the basis of urban heritage concepts and legal national economies in many European countries.
frameworks.
Overall, European urban heritage is in a good state of
The methodological foundations of contemporary urban conservation relative to other regions. Most European
conservation and regeneration were first laid in the historic centres still play a crucial role as major economic
1960s, when plans to revitalize ancient urban centres drivers in their cities. A few cities, such as Naples (Italy),
emerged in Western Europe. The destruction of the also represent exceptions, as poverty, combined with
Second World War, slum removal policies and strong governance issues, still defines their historic areas. In
reactions to development projects underpinned a others, urban conservation is hampered by institutional
renewed interest in historic urban areas. Beyond the conflicts or governance issues. In these more vulnerable
restoration of built structures, these programmes focused territories, urban sprawl and land speculation constitute
on improving the quality of life and housing conditions. a threat to urban heritage preservation. However,
They also fostered the elaboration of legal frameworks, beyond these specific situations, urban conservation
specific urban planning tools and financial instruments and regeneration policies have succeeded, in most cases,
dedicated to urban heritage and, more generally, the in preserving or renovating historic areas. Thus, the
integration of urban heritage protection within planning challenge in European cities is inadequate transformation
instruments. These experiences then spread throughout rather than a lack of renovation.
Western Europe, under various models during the
following decades and reached Eastern Europe in the The relationship between urban heritage and cultural
1990s. Pioneering examples included Bologna (Italy), identities is sometimes ambivalent. In a context of diverse
Lyon (France) and Bruges (Belgium). They originated as and robust regional and local identities, approaches to
countermeasures to major infrastructure developments, cultural identity in Europe are complex and multifaceted.
such as the urban highway in Lyon or the British-inspired The defence of historically derived local identities has
ring road system in Bruges. sometimes resulted in the exclusion of new communities,
such as those of migrants or foreigners. The tourism
The scope of urban heritage has gradually evolved to industry has in some cases led to the displacement of local
encompass new concepts and categories. The territorial communities from their original homes. In this context,
scope of heritage protection progressively extended alternative strategies should be explored to recognize
from a monument-centred approach to the consideration cultural identities, notably by fostering the notion of
of wider urban areas and landscapes. Heritage was ‘belonging’ rather than identity.
increasingly considered within a dynamic socio-
economic context, with a stronger focus on populations Urban heritage has also offered opportunities for
and communities. Specific methodologies have been stimulating intercultural dialogue. The reconstruction of
developed to manage the economic and social evolution urban heritage in Mostar (Bosnia and Herzegovina) and
of historic areas and mitigate gentrification processes. The particularly the Stari Most, a bridge which links the Bosnian
typo-morphological approach elaborated in Italy or the and Croatian communities, is among the most emblematic
safeguarding plans for historic areas initiated in France are examples of post-conflict heritage-based intervention (see
among the examples. New categories of heritage were Case Study 64). The Centre Architecture dialog Art (AdA)
also given increasing consideration, including dilapidated also offers a platform for dialogue among communities and
industrial structures and urban forms from the 1950s designs regeneration projects involving the three ethnic
onwards, which inspired regeneration policies in urban groups. Heritage-based projects can also offer an
peripheries. opportunity for dialogue with migrants, as in the case of the
regeneration of the Superkilen Park in Copenhagen
European cities now represent the largest ensemble of (denmark), which gathers objects chosen by neighbouring
urban heritage in the world. Most historic centres have migrant communities (see Case Study 81).
58
STUdY AREA
VARIOUS NATIONAL GOVERNANCE regeneration, regulation and overall design is ensured by

SYSTEMS WITHIN A STRONG REGIONAL the central state, while local authorities and private
FRAMEWORK players are entrusted for the implementation. In some
countries such as France, inter-municipal bodies play a key
Public authorities are key players in urban conservation in role in designing programmes. National agencies provide
Europe, particularly those dealing with heritage funding for local authorities in most countries. A wide
protection or urban planning. Most countries have a range of operational instruments have been developed,
dedicated national institution which oversees heritage including pre-emptive rights, heritage impact assessments
protection, as well as decentralized bodies. For urban for development plans and tax incentives for urban
regeneration.
C A S E ST U DY 15
Oslo (Norway) Local governments have a strong presence in urban
Reconnecting the city with its regeneration efforts and, to a lesser extent, in urban
natural environment while conservation. decentralization processes across the
region have shifted planning and urban development
FINLA
revisiting its urban heritage NORWAY
functions as well as, in some cases, heritage protection and

SWEDEN
identification, to local authorities. The 45 countries of the

E
Oslo, the capital of Norway, is Scandinavia’s oldest capital,
with its earliest sites going back over 1,000 years. Today, survey area count about 300 regional authorities of
the metropolitan area is home to 1 million inhabitants. various sizes and levels of autonomy, under differing
Oslo’s urban structure is the result of overlapping historic institutional models. Regional and local authorities are in
layers, including a medieval portion dating back to the city charge of preserving heritage within their respective land
use planning mandate. Other territorial entities, including
founding, the Christiania area, which was rebuilt with an
orderly grid after a devastating seventeenth-century fire,
metropolitan community or territorial agencies, also
and the Industrial Harbour, which was developed through-
out the Industrial Revolution. As a consequence of the influence heritage policies at the local or regional level.
widespread, ancient use of renewable construction materials, This complex institutional system resulted in part from the
particularly wood, Oslo has a rather well-established preser- stratification of civilizations and powers over time, which
vation system. Yet a longstanding preservation challenge created complex and overlapping identities at the local,
relates to the city’s relationship with its natural surround- regional and national levels.
ings. Despite the location of the city – at the inner reaches
of the Fjord, on both sides of the Akerselva River – commer- A majority of urban regeneration and conservation
cial and transport-related uses of the coastal areas have long activities are funded by public entities. The welfare state
separated the city from the water. In recent decades, though, lies at the heart of many European political systems and,
as a result, these principles are embedded in cultural
important efforts have been made to reconnect the city with
policies. Therefore, a majority of cultural institutions are
its natural environment, thereby providing a new perspec-
tive on its multilayered urban heritage.
public or publicly-funded private entities. Educational
In recent years, large-scale urban regeneration plans have and cultural facilities are often closely linked. This ‘cultural
put flagship projects at their centre, meant to serve as cat- welfare’ system is now evolving under the influence of
alysts for further regeneration and ambitious place-branding information technologies. The overall welfare system
instruments. These projects also gave priority to the preser- is challenged by economic crisis and the impact of
vation of authentic elements of the city structure and globalization. In addition to public funding, incentives are
favoured a high proportion of residential units. Among the provided by the state to local owners in most countries.
outstanding examples, the construction of the new Oslo The private sector is also increasingly involved,
Opera House in the Bjorvika district in 2008 prompted the particularly through corporate social responsibility
programmes.
regeneration of this previously run-down industrial area by
attracting further public interest and investment, thereby
gradually encouraging the improvement of public spaces
and the renovation of the existing building stock. Similarly, National urban conservation legislation is built on various
the transformation of the former western railway station into conceptual approaches and addresses both monuments
the New Nobel Peace Centre and the replacement of the and protected areas. The legislation on landscapes is of
Bjorvika surface motorway by a tunnel triggered the regen- particular relevance. Throughout Europe, urban centres
eration of Christiania’s historic square, as well as the reno- are protected as cultural heritage, as landscapes or, in
vation of the waterfront. The regeneration of both industrial some cases, as urban ensembles. The scope of this
and waterfront areas has, in turn, stimulated a new inter- protection varies widely, and in some countries, such as
pretation of urban heritage. The development of the me- Italy and France, includes public spaces. A wide range of
dieval park, which displays the ruins of ancient structures conservation measures have been developed, including
building controls and tax incentives. Urban planning
and depicts urban evolutions, and the creation of the
legislation includes the notion of conservation areas,
Norwegian Folk Museum – an open air museum with
155 traditional houses – are exemplary outcomes of these
regeneration efforts. where a set of regulations can be implemented pertaining
to density, height, floor area ratio or other criteria.
National urban regeneration legislation not only focuses
Source: IUAV, report for Study Area 3
59
on the restoration of historic centres but also targets protection still suffering from a lack of continuity. The
other objectives linked with environmental protection, recent report Getting heritage to work for Europe (European
economic development and trade, and mobility. Commission, 2015) recommends that the European
Union promote the innovative use of cultural heritage to
CASE STUDY 16 SERBIA spur economic growth, encourage integration and
BULGAR
contribute to sustainable development.
Çair (The former Yugoslav Republic of Macedonia)
Promoting respect for human
Increasingly, the European policy framework is promoting
MACEDONIA
(The former Yugoslav
rights through theatre
integrated approaches to urban conservation and
Republic of)
regeneration. The role of culture as a strategic asset for

The project Democracy through Theatre (DTT) aims to foster
a reciprocal exchange of experiences, skills and knowledge sustainable development is recognized across its policy
about human rights, democracy and equality. DTT is the fruit documents – including the 2014 Conclusions of the
of a process that began in 2006 between the Municipality Council of Europe – in particular for its economic role in
of Botkyrka (Sweden) and the Municipality of Çair (the the regeneration of urban and rural areas. Sustainable
former Yugoslav Republic of Macedonia), two cities with urban development is defined as promoting architectural
many features in common. Botkyrka received financial sup- quality and encouraging the conversion or reuse of
port from the Swedish Institute for a preliminary study of a existing land and buildings. Architecture is emphasized in
project on democracy and human rights in cooperation with particular for its clear contribution to the culture of cities
Çair, which showed that there was a need for, and an interest and sustainable urban development, as reflected in the
2008 Conclusions of the Council of Europe. The 2007
in, development and increased knowledge of democracy in
Leipzig Charter on Sustainable European Cities also
Çair. The two cities decided to take a theatre and dance-
based approach, aiming to develop and strengthen local
democracy through collaborative activities and public stresses the importance of culture to build an integrated
performances for youth. Teachers, principals and municipal urban development framework.
officials also participate in the project and have the oppor-
DENMARK
tunity to learn about how young people view their partici- CASE STUDY 17
pation in society. The project builds upon the experience of Hamburg (Germany)
Botkyrka and allows young people to act as a positive ex- Building on a trading past for PO
ample for local youth from Çair. Through informal activities,
both young people and adults can share their different per-
waterfront regeneration
GERMANY
spectives and better understand issues of human rights,
Hamburg, a city of 1.8 million people, is
democracy and equality.
one of Europe’s largest port cities whose distinct urban land-
Source: International Coalition of Inclusive and Sustainable Cities -
scape is shaped by its trading past. Hamburg’s first UNESCO
ICCAR
World Heritage property, Speicherstadt and Kontorhaus District
with Chilehaus, inscribed on the World Heritage List in 2015,
The legal and policy framework regarding urban is emblematic of this history. Speicherstadt represents the
conservation and regeneration addresses a wide range of
largest collection of historic port warehouses in the world,
issues and includes risk management plans (notably for
while the Kontorhaus district, which dates back to the 1920s,
was the first dedicated office district on the European conti-
flood basins), emergency management measures and nent. While this rich heritage represents a major draw for
construction restrictions for areas at risk. These issues are tourists – positively contributing to Hamburg’s economy –
addressed by different laws and mechanisms at the homelessness and gentrification represent pressing challenges.
national and local level. In many countries, a paradigm shift
has occurred from technically-oriented risk management In response, the city of Hamburg has launched several major
to a more holistic approach, notably with regard to flood initiatives, including HafenCity Hamburg, one of the largest
risks. The protection of cultural goods ranks among the urban regeneration projects in Europe in terms of land mass,
key objectives of emergency plans. In many countries, covering 2.2 km2 of the city’s old port. The project aims to
strategic environmental assessments also take the risks recover the port warehouses, restore the historic district and
facing cultural heritage into account.
reinforce Hamburg’s identity as a maritime city. Thus far,
HafenCity Hamburg has addressed almost all the ‘10 princi-
ples of sustainable development of urban waterfronts’ es-
Urban governance in Europe is closely tied to the tablished by the UN Global Conference Urban 21 in 2000,
European Union framework and its bilateral agreements and is seen as a positive development in efforts to improve
with countries in the region. This normative policy Hamburg’s overall urban liveability.
framework has been instrumental in the field of urban Source: IUAV, report for Study Area 3
conservation and regeneration. It offers a set of non-
binding acts on culture and heritage protection areas,
which have been prioritized in many resolutions since the European legislation also has a direct impact on urban
1970s and are reflected in the European Agenda for conservation and regeneration. The legal framework on
Culture. While urban pilot projects have produced urban development, and particularly the European
interesting results, their integration into national practices Commission 2014 Resolution, outlines the key principles
remains limited, with European policy on heritage of the urban agenda for European cities. Urban
60
STUdY AREA
Hamburg (Germany)
© SergiyN/Shutterstock.com*
development is supported through European regional World Bank targets South-East Europe in particular,
policies and several European sectoral policies pertaining addressing issues of social services, the environment and
to energy, the environment, climate and culture. civic engagement.
Legislation on energy efficiency encourages the
renovation of the existing building stock. Urban Europe hosts many regional and national networks
conservation is also addressed in environmental involved in urban conservation and regeneration, which
legislation, which emphasizes the cultural heritage focus their efforts on advocacy, the exchange of best
component of environmental impact assessments. Since practices and capacity-building. As the main European
2014, the financial legal framework has included culture NGO dedicated to heritage, Europa Nostra has
and heritage as a new category. contributed to several key European policy documents
and has launched its own operational initiatives (notably
UNESCO’s Culture Conventions have been streamlined the ‘European Heritage Alliance’). The URBACT network
into European policies related to cultural heritage and the includes 200 cities and promotes integrated solutions to
creative industries, although the European Union itself urban challenges, as well as new approaches to the
has only ratified one Convention – the 2005 Convention management of historic cities. The European Association
on the Protection and Promotion of the diversity of of Historic Towns and Regions (EAHTR), the Historic
Cultural Expressions. European initiatives complement Town Forum (HTF) and the European Heritage Network
UNESCO’s main lines of action. The European Heritage (HEREIN) also contribute to experience-sharing, notably
Label, for example, focuses on heritage promotion, while through the HEREIN database on heritage policies.
the 1972 Convention Concerning the Protection of the National associations of historic cities, many of which
World Cultural and Natural Heritage stresses protection. emerged after the Second World War, are also active in
Several European conventions, such as the European many countries and support the management of protected
Charter for Architectural Heritage and the European areas through research and advocacy, with different
Landscape Convention, also complement UNESCO’s focuses according to national experiences.
Culture Conventions. At the national level, most states
have ratified UNESCO’s Conventions and have The region also has an important network of training
implemented them through existing national legislation. institutes and culture institutions dedicated to urban
Some countries have dedicated World Heritage conservation and regeneration, including ICCROM
legislation. Site management plans are prepared by state (International Centre for the Study of the Preservation
authorities or by a delegated local body and have a direct and Restoration of Cultural Property). At the European
impact on urban preservation and regeneration through level, several programmes provide training facilities,
their protection and development objectives. notably the Regeneration of European Sites in Cities and
Urban Environments or the European Standards for
Regional funding is available through several mechanisms. Vocational Training in Urban Regeneration programmes,
The European Regional development Fund is dedicated which established a framework for vocational studies in
to job creation, economic growth and sustainable urban regeneration.
development. The European Investment Bank (EIB) and
the Council of Europe development Bank (CEB) invest in
heritage conservation and management, notably in World URBAN REGENERATION STRATEGIES:
Heritage properties and other historic sites, and give THE EUROPEAN EXPERIENCE
priority to improved quality of life in urban areas. The Joint
European Support for Sustainable Investment in City Over the past 30 years, European cities have undergone
Areas (JESSICA) was established by the European a widespread process of regeneration. Most urban
Commission, the European Investment Bank and the regeneration policies have addressed both physical
Council of Europe development Bank to fund urban renewal and a wide range of social, economic and
regeneration, and includes heritage in its scope. The environmental issues, creating a positive ‘snowball effect’.
61
PERSPECTIVE 5 of waterfronts into cultural and leisure spaces has been

A MULTI-LEVEL APPROACH TO FOSTERING A TOURIST-FRIENDLY, widely implemented, particularly as part of larger city
CREATIVE CITY branding strategies (see Case Study 85). The construction
Péter Szegvári Senior Advisor to the Lord Mayor, Budapest (Hungary)
or modernization of transportation infrastructure, such as
Budapest’s economic development is es- national and European government in- tramlines, has also been used to regenerate public spaces.
sential to Hungary’s competitiveness. stitutions. Budapest 2030, adopted by The revitalization of urban parks and green spaces, often
The city accounts for some 40% of the the General Assembly of Budapest, aims associated with the recovery of historic artefacts or
country’s GDP, while its GDP per capita to position Budapest as an innovative industrial structures, has also provided new recreation
is 230% of the national average. Budapest and creative city, through a strategic plan areas while preserving local biodiversity.
has a fundamental influence on Hungary’s focused on creating a multicultural envi-
Urban regeneration strategies have also been leveraged
economic performance. ronment and strengthening the creative
industries. In the twenty-first century,
Budapest possesses an international at- Budapest requires new, improved market by ‘culture generators’ such as museums and cultural
traction and tourism ‘brand’: its location, values, well-being, territorial competi- events, spurring the revitalization of public spaces and
architectural values, bath culture, cultural tiveness and sustainability. Hence our contributing to territorial branding. This strategy has been
events, natural features and gastronomy sustainable urban strategy is based on particularly instrumental in transforming declining urban
offer a special and unique experience for innovation, research and education. peripheries and former industrial areas, stimulating
visitors. This experience will be improved economic growth through the innovative reuse of
dilapidated industrial buildings. The flexible temporary or
by developing connections with the airport, In the planning and implementation of
improving port conditions for cruise ships, our cultural strategy, the key words are:
increasing the supply of tourist information cooperation and competition. We are partial reuse of buildings has also been increasingly
at main points of arrival, developing pro- carrying this out with the help of inno- explored to foster mixed-use developments. These
fessional tourism infrastructure and improving vative institutions, clusters, consortiums, programmes are often supported by a variety of funding
the parking and traffic situation. Budapest business agencies and special financial strategies, involving both private investors and
is known as a ‘party city’ and as the ‘cool instruments. Budapest city management municipalities, and by innovative legal mechanisms. In the
capital’ of Europe. While city marketing is working to create an innovative ecosys- last decade, particular attention has been paid to adapting
existing structures to new energy standards and
and branding is a relatively new undertaking tem for the creative cultural environment,
in Budapest, the city can leverage culture and provides incentives for entrepreneurial
for tourism promotion, particularly through startups and SME services in the local technologies, thus setting in motion a cycle of renovation
international cultural events and its status and global markets. Several projects are for buildings and public spaces. Urban heritage and
as a UNESCO City of Design. managed with the ‘triple-helix method’ creativity have become leading sectors in countries such
(clustering the public – research – business
As part of the Sustainable Urban Devel- sector) to create an ‘innovative-friendly CASE STUDY 18
opment Strategy of Budapest, we are environment’. Some good examples in-
taking a macro-regional approach in con- clude the regeneration of built cultural Edinburgh (United Kingdom of Great Britain
junction with the EU Danube Strategy, heritage and investment in the adaptive and Northern Ireland)
which covers 14 countries and more than reuse of brownfield zones through, for Diverse interests and actors UNITED KINGDOM
150 million people. Therefore, planning example, the conversion of a gas factory working together for urban LAND
OF GREAT BRITAIN
AND
and programming is guided by the prin- into a design centre, shifting the functions regeneration NORTHERN IRELAND
ciple of ‘multi-level and partnership gov- of the old Danube port to a cultural
ernance’, requiring the vertical and hori- centre, and using thermal energy for Edinburgh (UK), a UNESCO World Heritage property, has
zontal partnership of several local, regional, heating zoo buildings. served as the Scottish capital since the fifteenth century.
Edinburgh is home to the largest concentration of heritage-
listed buildings in the United Kingdom outside London and
Although most countries have faced similar challenges
the greatest number of built heritage sites in Scotland. Built
over this period – from demographic change, to
heritage thus constitutes a significant contribution to the city’s
distinctiveness.
deindustrialization, to the impact of globalization –
national priorities have differed between countries. Some The late 1960s signalled a radical shift in perceptions of the
countries, such as Poland, have given priority to the social, economic and environmental value of the city’s heritage,
adaptive reuse of derelict land and buildings, while others an evolution in thinking that has continued to this day. Long-
have emphasized employment and city branding. In term investments in the historic fabric have formed the basis
France, tackling social exclusion has been the main priority, of the regeneration processes, supported by both the public
while addressing spatial inequalities has been the focus in and private sectors through integrated action on both existing
Germany. Policies in the United Kingdom placed a greater architectural and urban structures and new construction. Over
emphasis on land-use efficiency. 4,000 historic buildings in Edinburgh are residential and pri-
vately-owned. Current issues related to private housing are
These policies have often been accompanied by
being addressed through specific financial tools and partner-
ships. The city’s dynamic overlapping of different actors within
reinvestment in public spaces to improve quality of life and a multi-level governance framework has resulted in regener-
enhancing urban identities. Various strategies have been ation partnerships that have been particularly integral to
conducted by European cities to revitalize public spaces. strategies for the adaptive reuse of built heritage, seen as an
Regeneration strategies have improved the use of social essential component of the city’s sustainable development.
space through physical improvements or by forming better Source: IUAV, report for Study Area 3
connections between different spaces. The regeneration
62
STUdY AREA
Amsterdam (Netherlands)
© Alex Kourotchkin/Shutterstock.com*
as France and have been also instrumental in some These regeneration policies have directly contributed to
Eastern or Northern European countries, such as sustainable urban development agendas. By reactivating
Slovenia, Croatia and denmark, in building the country’s existing structures and developing new urban services, the
global image. In marginalized areas less exposed to adaptive reuse of the existing building stock has helped to
the tourism industry, such as inner Calabria (Italy) and the contain urban sprawl and foster density. It has also
Balkans, urban conservation has led to a more sporadic contributed to the maintenance of local businesses and
regeneration process. infrastructure in inner city areas, thus containing the
expansion of suburban shopping malls. This approach can
Urban regeneration has been strongly supported by be particularly beneficial for marginalized urban areas
European Union strategies and frameworks. Although such as informal settlements. Urban regeneration has also
there is no clear definition of urban regeneration at the fostered the use of ‘soft’ transportation such as walking
European level, it has become a key priority and a notable and biking, allowing European cities to drastically reduce
area of cooperation between Members States. The their dependence on the car (see Case Study 56).
European Commission has played a key role in building
innovative, place-based and integrated approaches, which
have influenced most national policies, particularly in
southern Europe, which has a limited tradition of Townscapes never are, and never will be, finished. Some components
integrated urban regeneration approaches. The strategic stay virtually complete from the day the builders left the site, because to
objectives of urban regeneration include economic change them would be unthinkable – what, other than maintenance, could
prosperity, social inclusion and the improvement of the be done to improve Venice’s Piazza San Marco, Rome’s Piazza di San Pietro
urban environment. A particular emphasis is placed on or Bath’s Royal Crescent? But other components cry out to be remade: the
governance and citizen participation. Several programmes slums of London’s East End, the back-to-backs of Leeds and Bradford, and
have been developed, including the European Agenda for the traffic-congested and fouled streets of many an urban central area.
Culture/ Work Plan 2015-2018 and the Heritage-Led
Between these limits of what must be preserved and what must be renewed
Urban Regeneration Report. Urban development is
addressed through the Urban Pilot Projects and Urban
lies a range of components whose quality and usefulness is open to
Community Initiatives I and II, which foster innovative question in varying degrees. The study of townscapes seeks to recognize the
strategies for the sustainable regeneration of small and limits of both preservation and change in relation to those components,
medium-sized cities and troubled urban areas. Other and to consider how and when change should take place.
programmes include Cultural Heritage Counts for Europe, Gerald Burke, author
an awareness-raising programme highlighting the benefits
of cultural heritage; the Creative Europe Programme
2014-2020; and the European Capitals for Culture, which
directly addresses culture within urban development
strategies. However, urban regeneration needs to be further
consolidated, as the 2008 financial crisis and growing
Urban regeneration policies have been conducted under public deficits have slowed down the regeneration
various institutional and operational frameworks. Some movement. Although national and local authorities in
countries give local authorities a leading role; in Germany Europe have developed a comprehensive vision of urban
and Spain, regeneration policies are led by regional states, conservation and regeneration – encompassing physical,
while municipalities take a leadership role in Sweden, economic and social components – political will is still
Norway and Finland. Innovative mechanisms have been lacking. Job creation strategies have focused on the
developed, such as the social enterprises of the United traditional industrial and service sectors rather than on
Kingdom and Portugal, where publicly-owned urban the cultural and creative industries, despite its strong
regeneration companies provide incentives for private potential for growth. Regional coordination mechanisms
owners and support comprehensive interventions. In should be enhanced to push this vision forward.
France and Italy, some municipalities have adopted a ‘one
euro policy’, where unoccupied or abandoned properties
are sold for symbolic prices to encourage regeneration.
63
MOVING FORWARD: ROADMAPS FOR

CULTURE-BASED STRATEGIES
Urban conservation represents an important contribution

to urban sustainability discussions, with heritage and
environmental issues increasingly integrated within urban
policies. Reconnecting the city with its natural and
agricultural environment – through the promotion of
urban agriculture, the management of landscapes and the
development of brownfield sites – fosters the protection
and re-appropriation of heritage. In the face of growing
gentrification and suburbanization, innovative practices
of regeneration should be more widely disseminated in Bilbao (Spain), have proven effective, yet not always
among the large network of European small and middle- inclusive of citizens. Alternatives are now being put
sized cities, with a view to enhance their identity and forward. Urban regeneration can also be applied in post-
preserve their ‘urbanity’ through culture-based industrial decline contexts, as seen in the case of
strategies. In this perspective, the regeneration of urban Barcelona (Spain) and Marseille (France), although long-
landscapes represents an important area of interest for term results are sometimes uneven. The experience of the
sustainability. European Capitals of Culture offers various models for
these urban strategies: achieving symbolic regeneration,
Culture and heritage have been at the core of city responding to industrial decline, as seen in Glasgow (UK)
branding projects. City branding through the development and Lille (France); reviving the image of heritage cities in
of iconic architecture, such as the Guggenheim Museum Bruges (Belgium); enhancing the cultural profile of
economic poles in Luxembourg (Luxembourg) and Graz
PERSPECTIVE 6 (Austria); pushing marginal cities into the European
LEVERAGING MINING HERITAGE TO BUILD A NEW MODEL OF mainstream in Lisbon (Portugal) and Talinn (Estonia); and
URBAN DEVELOPMENT consolidating the image of multicultural cities, such as in
Jean-François Caron Mayor, Loos-en-Gohelle (France) Brussels (Belgium) and Essen (Germany). Cultural events
have also sparked the recovery of public spaces and city
attractiveness. In Bordeaux (France), the development of
Loos-en-Gohelle is a rural town in the panies, a research platform in photovoltaic
urban festivals fostered the switch to a more metropolitan
Nord-Pas-de-Calais Mining Basin, whose energy, a training centre for 350 appren-
landscape was sculpted by 136 years of tices in green construction jobs, an asso-
mining. After the closure of the last mine ciation for the protection and development structure (see Perspective 43). In Bologna (Italy), the
in 1986, the town council decided to of slag heaps, a think tank on climate dissemination of central areas throughout the city
use culture as a way to transform the change and examples of sustainable fostered the regeneration of public spaces, which
area, preserving the collective memory buildings, Base 11/19 is now considered increasingly host cultural events (see Case Study 104).
and reclaiming mining heritage. A pit in to be a centre of excellence for sustainable These interventions have also stimulated the emergence
of a new economy, based on social interaction and local
the town centre was converted into a development. As a true incarnation of
grass-covered amphitheatre, which has regional history that illustrates both the
presented the work of artists using ‘land world of yesterday, synonymous with a activities. A major trend across the region, particularly in
art’ techniques and shows by former lack of sustainability, and the world of Western Europe, is the use of national or regional heritage
miners and farmers. As a result, local tomorrow, turned towards green con- labels, as well as international normative tools and
people were gradually becoming the struction, renewable energy, culture and programmes, by local authorities to foster recognition of
primary stakeholders in their town. environmental protection, Base 11/19 their heritage assets and stimulate local development.
acts as a laboratory and research centre Local involvement in World Heritage nomination dossiers
and efforts to join the UNESCO Creative Cities Network
In the mid-1990s, during the revision of for a new development model.
the land-use plan, the town council part-
nered with the local population to produce Although unemployment and poverty re- are among the examples.
a social and environmental diagnosis main major issues, the strategy that was
and a charter on the living environment, adopted 30 years ago is producing tangible Preserving the social mix in historic areas remains a key
pinpointing such priorities as water man- results. Organic farming has been intro- challenge. Most European historic centres are affected by
agement, landscape preservation, waste duced in 8% of the area’s farmland, a gentrification, with the exception of southern European
treatment, renewable energy, green con- 15-km green belt traverses the town, for- countries such as Greece, Portugal and parts of southern
Italy. The expansion of the tourism economy, together with
struction and the involvement of the mer stables have been converted to pro-
local population. Since the mid-1990s, mote soft modes of transport, 150 jobs
the reconversion strategy in Loos-en- have been created at Base 11/19 and the the growing migration of wealthy retirees from northern
Gohelle has begun to have an impact on number of associations has doubled over to southern areas, has contributed to this trend. Several
the local economy. Renamed Base 11/19, 20 years. In November 2014 the city was mechanisms have been set up to mitigate speculative
pit 11/19, at the base of the slag heaps, recognized as a pilot city for sustainable processes, including rent control to avoid unofficial
was the site of major regeneration works. development by the French Environment renting to tourists, as implemented in Oslo (Norway)
With a cluster of green construction com- and Energy Management Agency. and Berlin (Germany). In Turin (Italy), Leipzig (Germany)
and Rotterdam (Netherlands), regeneration policies
64
STUdY AREA
Light. Move. Festival, Lodz (Poland)

© Ministry of Foreign Affairs of the Republic of Poland/Flickr.com*
have succeeding in maintaining residents in their original CASE STUDY 19

neighbourhoods. The specific relationship between
GERMANY
Graz (Austria)
migrants and historic centres also needs to be underlined. Municipal staff training in
AUSTRIA
Some small historic centres that were abandoned by their

L
H
cultural diversity S
long-time inhabitants are now being revitalized by migrant

ITALY
SLOVENIA
management CROATIA
communities, as seen in the case in Mirandola (Italy).

The city of Graz, a former European City of Culture, provides
Mitigating ‘museumification’ and promoting sustainable its local municipal staff with regular training in the fields of
tourism are the most pressing issues facing historic areas. ethnic and cultural diversity management and intercultural
Many European cities have been transformed into open- dialogue. Municipal employees also benefit from training in
air museums. Innovative methods must be developed to anti-discrimination practices and in the provision of culturally
mitigate harmful property trends, such as the substitution sensitive and appropriate services. The city has set up both
of local businesses with chain stores. Quality local cultural
introductory and advanced training, with the level and con-
tourism should be widely encouraged as an alternative to
tent based on the needs assessments of municipal staff. At
least three themed annual seminars are provided by the ad-
mass tourism, to avoid the transformation of European ministration academy. Providing training for municipal staff
historic cities into gentrified tourist ghettos (see also Case is an important way to raise awareness of discrimination
Study 58). and cultural diversity, ensuring that employees consider
these questions in their everyday practices, in their relations
Cultural institutions are gradually evolving into active with residents and in service provision. With training
social and community centres, exchange platforms and adapted to staff needs, such programmes can help fill gaps
‘social condensers’ dedicated to the promotion of innovative in the municipality’s practices.
ideas. New technologies are further encouraging these Source: International Coalition of Inclusive and Sustainable Cities -
transformations. Some museums are working to foster the
ICCAR
integration of migrants or minorities into their surrounding

communities by highlighting their contribution to national In order to multiply its economic impact, the concept of
or local cultures, as seen in the Jewish Museum in Berlin culture should expand beyond a recreational, touristic or
(Germany) or the Quai Branly Museum in Paris (France). educational focus. The entire chain of creative production
Other approaches focus on preserving and showcasing – both material objects and spaces – should be taken into
specific local identities through dense networks of account. The economic impact of heritage restoration and
museums and cultural institutions, which allow maintenance, which already represents more than a
communities themselves to present and regenerate their quarter of the value of Europe’s construction industry,
identities. The Carnival Museum in Binche (Belgium) is could be further enhanced by strengthening its links with
among the examples (see also Case Study 61). the creative sector.
Culture and heritage can also be a source of economic

regeneration. In a context of increasing global competition
with emerging countries and growing territorial inequalities
at the national level, Europe needs to reformulate its
economic strategies. Addressing the crisis of climate change
and developing innovative approaches to urban heritage
preservation must be essential components of these efforts.
Fostering the creative economy can also be a way to
encourage quality knowledge-based production, allowing
for the strengthening of small and medium-sized firms and
assisting in the development of a new relationship with work.
65
Coordinator of the regional study: THE STRELK A INSTITUTE FOR

MEDIA, ARCHITECTURE AND DESIGN
Founded in the Russian Federation in 2009, the Strelka Institute for

Media, Architecture and Design is a non-profit and non-governmental
research and training institution dedicated to urban design and
culture-based urban strategies. It proposes educational programmes
on urbanism and sustainable urban development and conducts
research activities in the field of architecture and urban design.
The Strelka Institute builds on an extensive network of experts and

professionals in different areas associated with culture and urbanism,
including urban planning, cultural management and urban
conservation. It is committed to various high-level research projects,
such as the elaboration of the Moscow Strategic Master Plan, the
conception of preservation and development programmes for several
cities within the Russian Federation and the completion of a study on
Russian Science Cities.
66
STUdy area
Armenia, Azerbaijan, Belarus, Georgia, Kazakhstan, Kyrgyzstan, Russian
Federation, Tajikistan, Turkmenistan, Ukraine, Uzbekistan
HIGHLIGHTS
Architectural styles and urban morphologies were shaped
by Byzantine, Eastern Islamic or European influences, while
Soviet planning fostered the emergence of standardized
urban environments.
Cities continue to be defined by a diverse social and cultural
mix, with rather limited gentrification processes, although
social and spatial segregation has been on the rise over the
last decade.
Community-level projects on urban heritage conservation

are gaining momentum, while civic movements focused on
urban issues have also begun to incorporate cultural aspects.
Culture plays a crucial role for dialogue, social cohesion
and conflict mitigation, through multiple national and
transnational cultural initiatives aimed at relieving ethnic
tensions.
Culture is an emerging contributor to urban economies in the

region, particularly in small- to medium-sized cities, through
cultural tourism and a growing, although still relatively small,
creative economy.
Urban conservation and regeneration practices are
increasingly demonstrated through the reuse of former
industrial buildings and Soviet era public spaces, as well as
revitalization projects for historic cities.
City branding is also becoming an increasingly common
practice, as the architectural environment often blends the
historic urban fabric, cultural memory and modern urban
developments.
67
Church of the Savior on Spilled Blood, Saint Petersburg (Russian Federation)
© Dmitriy Krasko/Shutterstock.com*
URBANIZATION AND THE SHAPING OF centres disappeared altogether, sparking a widespread

URBAN IDENTITIES ACROSS HISTORY economic crisis and contributing to migration,
unemployment and poverty. In capital cities,
For much of its history, the region spanning from Eastern overpopulation has led to job and housing shortages,
Europe through the Caucasus and into Central Asia was contributing to the expansion of the informal economy
largely agricultural, marked by comparatively low levels and organized crime. In many cases, secondary cities and
of urbanization. At the turn of the twentieth century, the outlying areas were faced with deteriorating economies
urbanization level was low in present-day Russian and shrinking populations. Although urban growth
Federation, Belarus and Ukraine. Similarly, in Central Asia resumed after 2000, it did so at a slower pace, with much
the population remained essentially nomadic, although of this growth concentrated in a handful of capital cities,
the region’s most ancient cities are found here along the driven by internal migration. In present-day Armenia, 63%
Silk Road. As a result, a strong social divide between city of the population lives in cities4 while in Belarus, 76% of
and countryside emerged in the region, a distinction the population is urban (United Nations, 2014). Today, the
which remains culturally important to this day. Russian Federation’s network of cities is much sparser
than in Western Europe, with most cities located inland.
Starting from the early 1920s, the region experienced a
dramatic period of urban growth. With the rise of the the despite these urban challenges, cities of the region
Union of Soviet Socialist Republics (USSR), the urban continue to be defined by a diverse social mix. The
population swelled, fuelled by intensive industrialization uniform housing and standardized urban environments
and mass migration; two-thirds of the region’s of the Soviet era continue to encourage social diversity.
contemporary cities were founded during the Soviet era.1 Urban housing mobility remains weak, thanks to
In Ukraine, the urban population increased from 15% at wholesale privatization in the 1990s, which allowed
the beginning of the twentieth century to 70% at the residents to become the owners of their flats irrespective
century’s end.2 Between 1926 and 1989, the urban share of their purchasing power, as well as an underdeveloped
of the population of Uzbekistan almost doubled, from mortgage market. This is reflected in relatively low rates
22% to 41% (Centre for Economic Research, 2013). of income inequality; the Gini coefficient, a statistical
Urbanization varied greatly between regions and indicator of the degree of social stratification, varied from
countries. Some countries reached high levels of 26 to 42 points for surveyed countries in the region in
urbanization, including 70% in Ukraine,3 others remained 2012. Belarus and Armenia have the lowest figures (26
more agrarian, such as Azerbaijan. Soviet cities were and 30.5, respectively), while Georgia and the Russian
structured to serve specific branches of the economy. Federation have the highest figures (41.4 and 41.6,
Many were founded as industrial centres, mining towns respectively).5 Cities are not typically marked by
or railway hubs, although other categories of cities also ethnically homogeneous neighbourhoods. A trend
emerged, including administrative centres, satellite cities towards the reuse of industrial buildings for the creative
and university towns, developed in particular during the industries serves as a deterrent to gentrification.
scientific revolution of the 1960s. This specialization had However, urbanization is often correlated with ethnicity,
important consequences. Larger cities grew at the with some communities, including the Jewish community,
expense of smaller and medium-sized ones, while little being significantly more urbanized than others. In
progress was made in closing the gap between rural and contrast, Georgia has the most culturally diverse urban
urban standards of living. centres in the region. In more recent years, though, social-
spatial segregation has been on the rise, with less
attractive areas witnessing an outflow of the middle class
The conservation-sustainability approach is not and an inflow of immigrant labour.
new. Indeed, historically, pre-industrialisation, it was
the norm in all civilisations. Building materials were Until the early twentieth century, urban heritage
recycled and buildings reused; an evolutionary, reflected a wide variety of cultural influences and styles.
additive process was taken for granted…and top-down Between the tenth and sixteenth centuries, the ‘Old
academic interpretations of cultural significance had Russian Architecture’ style, greatly influenced by
not been formulated and played no part. Byzantine traditions, spread throughout the region, and
was particularly evident in the churches of the east.
National schools of architecture rose to prominence
Dennis Rodwell, architect and planner
beginning in the mid-eighteenth century, often

representing local interpretations of Western European
In the decade following the end of the USSR, the urban architectural styles, such as Baroque, Classical, Romantic,
population declined significantly. Many former industrial Revivalist and Art Nouveau. In Central Asia, many ancient
cities – such as Istaravshan and Panjakent (Tajikistan) –
1
Source: Strelka Institute for Media, Architecture and design, report for Study
Area 4
2
See: http://www.ukrstat.gov.ua/ 4
See: http://data.worldbank.org/indicator/SP.URB.TOTL.IN.ZS
3
Ibid 5
See: http://data.worldbank.org/indicator/SI.POV.GINI
68
STUdY AREA
Tbilissi, Georgia
© Magdalena Paluchowska/Shutterstock.com*
can be traced back to the fifth and sixth centuries BC. Ad in the capital of Turkmenistan, was demolished as part
Medieval buildings, which reflect Eastern Islamic of the redevelopment of the square between the Hotel
architecture, have also been preserved. In the Caucasus, Turkmenistan and the national parliament building. In
religious buildings such as churches, monasteries and Kazan (Russian Federation), preparations for the city’s
mosques represent the most ancient cultural heritage. In millennium celebrations in 2005 led to the destruction of
general, historic cities in the region are marked by dense, over 50 buildings of historical or cultural value.
geometric layouts, imposed during an active period of city
reconstruction starting from the late eighteenth to the CASE STUDY 20
early nineteenth century.

USSIAN
Almaty (Kazakhstan) DRATION
Community-led initiatives KAZAKHSTAN

The Soviet era was marked by a rejection of ‘bourgeois’ support creativity C
and religious architecture and the embrace of new forms UZBEKISTAN
and functionalities, as architecture was expected to

KYRGYZSTAN
Almaty, Kazakhstan, is currently wit-
embody the values of Soviet society. As modernist
TAJIKISTAN
nessing the rapid development of its URKMENISTAN
architectural styles and abstract modern art were mostly
creative industries through the creation of new creative clus-
rejected and deemed as degenerate, a certain
ters, public spaces and festivals of contemporary culture ini-
tiated and led by its citizens. One such initiative, the annual
reinterpretation of neo-classical features was sometimes festival of contemporary art ARTBAT FEST, is the brainchild
observed in architecture, urbanism or the arts. The city of a group of artists, cultural professionals and private in-
planning model of the time, implemented in an vestors and has been running since 2010 in the absence of
environment devoid of private land-ownership and with a museum of contemporary art in Almaty. As a result of the
a state monopoly, led to the standardization of cities festival, a public space for master classes, film screenings
throughout the USSR. Prefabricated construction and the and lectures was opened in Almaty in 2015.
development of uniform, microdistrict residential
complexes contributed to a loss of local character and Over the past decade, the Kazakh authorities have intro-
identity. Soviet planning methods placed particular duced a number of initiatives to preserve and revitalize
emphasis on public space, cultural infrastructure and
urban culture. In November 2014, the government adopted
transportation, a legacy which remains evident today.
a Cultural Policy Concept, targeting the development of cities
through culture, including cultural clusters. Nevertheless,
However, some historic ensembles and buildings were bottom-up initiatives in the creative industries remain largely
also preserved in the Soviet era, especially in satellite unsupported at the governmental level. Despite community
States, and pastiche architecture was developed after demand for creative industries in the city, no clear-cut de-
Second World War. Furthermore, beyond the urban velopment strategy exists. The mid- to long-term prospects
standardization trend, particular attention was paid of fulfilling the city’s cultural potential, therefore, remain un-
throughout this period to regional identities and ‘folklore’, clear in the absence of stable funding or qualified personnel.
as reflected in the development of ethnology and Source: Strelka Institute for Media, Architecture and Design,
archeology, as well as the development of ethnology report for Study Area 4
museums.
The end of the USSR saw a revival of national cultures and
The end of the USSR created severe challenges for identities. Intangible heritage was a key component of this
heritage conservation. Political and social unrest, recovery of identity, especially in Central Asia and the
combined with uncontrolled liberalization, led to the Caucasus. There, the development of the handicraft
loss of many buildings and sites, with aggressive infill industry proved vital for urban economies, particularly in
development forever altering the historical urban fabric, small to medium-sized cities, although the quality of these
as well as modern architecture from the 1980s. In many products – and emphasis on local know-how – has
cities, especially larger ones, a significant number of deteriorated in recent years due to international market
historic buildings or ensembles were demolished, in the pressures. Interest in contemporary architecture was also
face of growing land speculation pressures or large-sized revived during this period, while cities in the Russian
urban development programmes. Some ‘historic’ areas or Federation, Ukraine and the Caucasus became centres of
buildings were also rebuilt ex nihilo, with a modern contemporary art, often with funding from the private
reinterpretation of traditional architectural features, sector. Visions of the role of culture vary greatly between
resulting in a loss of authenticity. For example, Ashgabat countries, with some placing emphasis on entertainment,
Hill, an archaeological site dating back to the third century and others on education.
69
Cultural heritage was instrumental in shaping the

CASE STUDY 21
identities of newly independent states. The question of Samara (Russian Federation) ESTONIA
RUSSIAN
FEDERATION
national identity became particularly relevant following Revitalizing the historic LATVIA
the breakdown of the Soviet Union. The mass renaming

HUANIA
core and encouraging BELARUS
of cities was the first step in this process, as many cities community ownership of
returned to their pre-Soviet names during the 1990s. A the city UKRAINE
second wave of renaming is now underway today. A focus

on traditional architectural styles was another tool used A major economic, transport, academic and cultural hub,
to shape national identities, particularly in Central Asia Samara is located in the Middle Volga region. As the indus-
and in capital cities, leading, for example, to a revival of
trial infrastructure was built in the urban periphery, the city
managed to preserve its historic environment until the
traditional Islamic architecture and the use of national 1990s, which reflected eclecticism, art nouveau and con-
motifs in building facades. structivism. However, the central location of the historic area
has made it a candidate for mass property development.
Today, an architectural environment is emerging which Large plots of land are now being acquired for new con-
synthesizes local histories with modern urban struction and historic buildings are rapidly being replaced
construction, as seen in the reconstruction of the by new residential buildings, all the more so as inhabitants
cityscapes of Astana (Kazakhstan) and Ashgabat are not fully aware of their value. The property situation, to-
(Turkmenistan), where new monuments reflect gether with the absence of an official demarcation of the
traditional, nomadic values and practices. Other historic centre and outdated planning regulations, has nur-
countries, such as the Russian Federation, Azerbaijan and tured an attitude of disenchantment among residents to-
Georgia, have turned towards a more international and
wards their housing and neighbourhoods. Only 10% of land
plots in the historic area have registered property rights and
technological approach. Cities in these countries, about 30% of households are not privatized and await re-
particularly capital cities, have focused on developing settlement.
contemporary architecture, drawing on global design
trends and utilizing high-tech materials. In some cases, In this context, civil society has been instrumental in building
modern technology is fused with historic landmarks and up a strategy for urban conservation and regeneration.
tangible heritage. The ‘discover Moscow’ project, for Under the aegis of the non-profit organization Urbeks, the
instance, has resulted in the placing of Quick Response Samara 2025 Strategy for Integrated Development was is-
codes on cultural landmarks (a 2d barcode which sued following two years of collective work involving ex-
provides easy access to information through a perts, business owners and approximately 3,500 citizens.
smartphone), while the OpenUkraine web project offers The community-based organization Samara City Institute
high-quality images and multimedia materials about
(SCI) was created in 2012, bringing together architects and
urban planners to develop a concept of sustainable devel-
several cities, allowing visitors to ‘walk’ the city streets opment for the historic centre. In 2015, a strategic plan was
online. developed by SCI and Moscow Higher School of Urbanism,
which suggested the development of the historic centre as
a creative ‘distributed’ university campus, as an alternative
A GROWING CITIZEN ENGAGEMENT to the regional government’s proposal to transfer universi-
WITH URBAN HERITAGE AND CULTURE ties into a single cluster in the periphery. However, this in-
tegrated vision is at odds with the municipal project, aimed
Citizen attitudes towards urban heritage are varied. at modernizing the historic area in view of the 2018 World
Although the value of heritage is generally acknowledged, Cup. The project, which includes the construction of a large
certain types of heritage – such as medieval heritage in shopping mall, a congress hall and high-rise development
Uzbekistan and religious sites in Armenia – are more
along the river, is still opposed by the local community.
valued than others. Moreover, attitudes towards Soviet- Particular focus has also been given to raising awareness
era heritage remain ambivalent, while grassroots among local residents of cultural and historic values by ed-
participation in conservation efforts is limited. However, ucating them about their property rights and, more gener-
in a few cases, urban preservation movements are gaining ally, their ownership of the city. The Tom Sawyer Festival,
momentum; in Saint Petersburg (Russian Federation), for organized in 2015, is the most successful initiative to date.
example, citizens came together to defeat a planned 396- Local inhabitants, volunteers and business owners were
metre-high skyscraper in the historic centre, which given support to restore facades in Old Samara, using alter-
together with a formal decision from the World Heritage native sources of funding. This strategy of ‘soft renovation’
Committee forced the project, now called the Lakhta has proven particularly effective, demonstrating that the
Centre, to move to the outskirts of the city. Most citizens public is a major, underestimated resource for restoring the
across the region tend to identify primarily with their
historic environment. The reinstatement of ‘organic’ devel-
opment practices and a new unsubsidized economic model
country, rather than with their city, although in the
should be further explored in the future.
Russian Federation citizen identification with their
locality is more pronounced.
Source: Strelka Institute for Media, Architecture and Design,
report for Study Area 4
70
STUdY AREA
Jazz-Bishkek-Spring Festival, Bishkek (Kyrgyzstan)

© Anton Bolkunov
Community-level projects on urban heritage are gaining partners (including ICOM and UNESCO), which has
momentum. Involving photography, theatre or personal improved the capacity of museums to act as public
narratives, they bring a clear contribution in building educational centres. Museums in major cities are being
urban identities. The Velonotte project offers cycling renovated and finding new ways to interact with the
tours in several Russian cities, allowing locals to discover public, launching ‘Night at the Museum’ and virtual
their historic landmarks. Other cities offer themed tours museum initiatives.
for residents. City festivals, such as the City days held
throughout the region, also contribute to building a sense Culture also plays a crucial role for dialogue, social
of community identity. Other community projects link cohesion and conflict mitigation. To maintain ethno-
residents’ personal stories with the urban environment, cultural diversity, major cities host ‘friendship houses’ and
such as the 360STORIES web-based project in Armenia. national culture centres, which promote the cultural
In Bishkek (Kyrgyzstan), the Photodrift art project invites traditions of minority groups. All countries hold
residents on ‘photo walks’, while the MESTO d theatre international and regional cultural festivals, usually
offers performances based on the personal stories of financed by the government, which serve as platforms for
residents. Feature films about the contemporary culture cultural exchange; the World Nomad games, attended by
of particular cities have also become popular. 10 countries, is one example. Ethnic art festivals have also
become popular. Activities linked with the restoration of
Civic movements focused on urban issues have also begun the Silk Road, such as the Silk Road International Cultural
to incorporate cultural aspects. While many were initially Forum, also foster inter-cultural dialogue. Many countries
devoted to protecting parks and green spaces, some now take part in international programmes aimed at
focus on at-risk cultural heritage. In Georgia, civic promoting dialogue through culture. The ‘Sharing History
organizations have fought the Tbilisi Panorama project, a – Cultural dialogues’ initiative brings together historians,
large multi-use complex planned for development in the heritage experts and citizenship education professionals
old city. However, these civic initiatives are less numerous in five countries to raise awareness on innovative and
in Central Asia and almost nonexistent in Tajikistan, responsible approaches to cultural education, creating
Turkmenistan and Uzbekistan. In Central Asia, civic both cross-border and national networks.
movements focus instead on intangible cultural heritage.
In Uzbekistan, numerous associations represent Uzbek Other initiatives meant to relieve ethnic tensions have
folk artists and craftsmen, while foundations sponsor craft been launched by municipal and national authorities, as
competitions, festivals and exhibitions. Other community well as NGOs. Rates of ethnic conflicts differ greatly
associations focus on the creative industries; Urban Space across the region. Conflicts are declining in Azerbaijan,
100 (Ukraine) is a community-run restaurant dedicated to Armenia and Georgia, while they continue in Kyrgyzstan
the promotion of urban initiatives, while Batumi Backyard and Ukraine. Armenia and Azerbaijan are essentially
Stories (Georgia) brings together artists and citizens to mono-ethnic countries, where the titular nationalities
explore the city’s cultural legacies through performance account for about 98% and 91% of the respective
art (see also Case Study 77). populations. Other countries have a more varied ethnic
composition (Tishkov and Stepanov, 2014). To counter
This growing community engagement has been ethnic divisions, the Mayor of Moscow (Russian
strengthened by professional associations, which Federation) launched a campaign against ‘migrant phobia’,
continue to operate much as they did during the Soviet while in Kazakhstan a video series entitled ‘One Country.
era. After the dissolution of the USSR, Soviet-era creative One People. One destiny’ was shown on national
unions split into smaller organizations, which are still television. NGOs are also active on this subject. Izolyatsia,
active in designing policies, improving legislation, a non-governmental platform based in donetsk (Ukraine)
organizing professional competitions and publishing originally created to serve the creative community, has
academic papers. CIS-wide discussion forums, such as the now shifted its focus to conflict mitigation through
CIS Arts Circuit and the International Marketing and education and arts. Culinary projects aimed at promoting
Advertising Festival White Square in Minsk, help to intercultural dialogue are also very popular, such as the
expand and consolidate these professional communities. culinary master classes organized by the Centre for
A community of museum workers is gradually forming Migration and Ethnic Studies in Moscow (Russian
and building their skills, with support from various Federation).
71
GOVERNANCE FRAMEWORKS: Governance practices remain rather centralized. Key

A TENDENCY TOWARDS participants are federal, regional and local government
CENTRALIZATION AND EMERGING bodies. decentralization processes, while underway
PARTNERSHIPS throughout the region, have resulted in differing
outcomes. divisions of power between central and local
Policy frameworks related to urban conservation and authorities are sometimes unclear and communication
regeneration share important similarities across the between different governance levels, as well as
region. All countries have general culture laws and monitoring systems, remains insufficient. In some
constitutional acts that guarantee citizens’ rights, countries, local authorities are subsidiaries of the state
including freedom of expression and access to culture, government, yet, in recent years, others have tended to
and affirm the objective of heritage protection. These draft municipal legislation based on the principles
provisions are the starting point for most policies and embedded in the European Charter of local self-
legislation related to culture. Most countries had a corpus governments. Some state capitals have specific
of laws pertaining to heritage, archeology or ‘museum governance arrangements. Special attention should be
preserves’ (site preservation), developed during the paid to building capacity at the local level to support the
Soviet era, which have then been updated or replaced by decentralization process. An important role is also played
a new legislative framework. Over the past 20 years, key by educational and research institutions, which elaborate
policy reforms have been implemented in most countries strategies or instruments, and by association of cities,
pertaining to land use and planning codes, local which disseminate practices. In a number of countries, the
governance and culture heritage preservation. Every Church is charged with the conservation of religious
country in the region now has laws regulating urban architecture.
development and architectural practice, which define the
notion of historic cities and settlements and regulate The role of NGOs in urban conservation and regeneration
construction procedures and protected zones. In most has increased at varying degrees throughout the region.
countries, this legislation also includes regulations on In Ukraine, civic associations have served as a catalyst for
risk management in the implementation of urban the transformation of city districts through creativity,
regeneration policies, including both risks from natural while in the Russian Federation and Georgia, citizen
disasters and rapid urbanization. Moreover, all countries activism has managed to stop major infrastructure
in the region have civil defence agencies responsible for projects which threatened the integrity of their historic
cultural heritage protection in disaster situations. This cities. In Central Asia, many NGOs focus on the
legislative framework should be further refined, notably safeguarding of intangible heritage. Other involved
to frame the intervention of NGOs and foundations in the NGOs or international organizations include the Central
cultural field, or to improve urban planning, land-use and Asian Crafts Support Association (CACSA), the Aga Khan
property rights regulations. Foundation, the World Bank Cities Alliance and the EU-
funded Eastern Partnership Culture and Creativity
Programme.
PERSPECTIVE 7
A LITERARY CITY MOVES TOWARDS SUSTAINABILITY
Andriy Sadovyi Mayor, Lviv (Ukraine)
The region is home to significant human resources,
although training institutions need to be modernized.
In Lviv, cultural policies introduced in spurred the renewal of the cultural life Many professionals were trained, particularly over the
2013 have generated several economic of these areas. Gastronomy has also Soviet era, in various disciplines including art history,
and infrastructure-related changes. The been developed with a view to integrating architecture and urbanism, archeology or heritage
establishment and consolidation of cultural cultural and historical perspectives by restoration. These technical and scientific skills constitute
an asset, sometimes insufficiently recognized, to further
centres - particularly in literature, film- drawing on particular national references,
making and media arts - have strength- literary traditions, historical events and
ened the cultural map of the city, which eras. More than one-third of Lviv’s restau- develop urban conservation and regeneration efforts.
has been supported by strong independent rants have become thematic establish- Training institutions should, however, be modernized and
players. These initiatives complement the ments that aim to convey modern urban partnerships with foreign universities or scientific
city’s designation as a UNESCO City of mythology. There has also been a trans- institutions further extended. In that regard, the recent
Literature, a status it has held since 2015. formation of the library system through- opening of several training institutions in the field of
out the city, with institutions such as architecture or urban planning, is a positive signal.
In recent years, the growing tourism de- Mediateca, Urban Library, Innoteca, and
mand for cultural products has led to an Sensoteca serving as platforms for cre-
increase in festival tourism, and today ativity and public spaces for civic com- New instruments and mechanisms of urban management
more than 20 large-scale festivals take munication. These changes became the and planning are being developed, although their
place in Lviv every year. The revitalization foundation for obtaining the title of implementation is hampered by an overall lack of
of cultural and social infrastructure in ‘UNESCO City of Literature’ in 2015 and experience in urban management. Several historic city
residential districts outside the city centre, now serve as confirmation that our city management plans developed with UNESCO have had
such as Pidzamche, Levandivka and is moving towards forming stable cultural positive results, in the face of growing pressures on urban
heritage. In Uzbekistan, UNESCO partnered with the
Topolna, has created new jobs and and economic development in the future.
Ministry of Culture and Sports to develop several
72
STUdY AREA
Lviv (Ukraine)
© Artur Synenko/Shutterstock.com*
such plans, which will include complete GIS database Forum on Intercultural dialogue. Its practice of ‘model law
documentation, an inventory of cultural heritage making’ had a particular impact in disseminating UNESCO
properties and regulations for conservation. The use of concepts, as these model laws are largely derived from
strategic plans to guide city development, as well as state international conventions, including UNESCO Culture
programmes for the development of culture, is also Conventions.
widespread, although few address the creative industries.
More specifically, the safeguarding of cultural heritage Funding frameworks for urban conservation and
based on the ‘museum preserves’ legislation set up in the regeneration need to be modernized. National
late 1940s is commonplace. This system of protection governments are still the main source of funding. due to
encompasses large landscapes, historic cities, monastery insufficient local tax systems, most municipalities rely
complexes or large-scale architectural ensembles, as well upon state transfers. Other funding challenges include
as the homes or estates related to the life and work of the lack of entrepreneurial skills, insufficient economic
prominent figures. In Ukraine, ‘city-preserves of national incentives and the general financial dependence of
or local significance’ are particularly noteworthy. cultural institutions. However, a recent trend is emerging
towards the development of private-public partnerships
UNESCO’s Culture Conventions have a considerable in different sectors, including housing, public utilities and
impact on national legislations. All countries have ratified culture. Tax incentive systems related to culture have
the World Heritage Convention, updating their national been introduced in a few countries, including the Russian
legislation accordingly. Cultural heritage is taken into Federation, Uzbekistan and Ukraine, and should be more
account in the implementation of master plans, although systematically developed to promote cultural and
a lack of public involvement and human resources creative industries. Sponsorship is also regularly provided
remains an issue. Every country in the region apart from by foundations created by private companies.
the Russian Federation has ratified the Convention for
the Safeguarding of the Intangible Cultural Heritage. As
a result, governments have either included intangible A SHIFT TOWARDS CULTURE AS
heritage in their existing cultural laws or enacted new A DRIVER OF ECONOMIC DEVELOPMENT
legislation. Its implementation is very active, with AND CITY BRANDING
capacity-building, inventorying and safeguarding
programmes underway in many countries. Six countries Culture is making a growing contribution to urban
have ratified the Convention on the Protection and economies in the region, although the available data is
Promotion of the diversity of Cultural Expressions, and limited and experiences vary from country to country.
have included related provisions in their respective Public expenditure on culture varies greatly, ranging from
legislation. However, insufficient state funding impairs its 0.46% of the GdP of Georgia6 to 1.1% in the Russian
full implementation, while certain types of cultural Federation.7 However, state expenditures on culture per
expressions, such as contemporary art, do not receive capita have risen significantly from 2000 to 2012, with
support in some countries – reflecting public and the highest rates being in the Russian Federation and
government scepticism of the cultural industries more Kazakhstan. Moreover, culture and leisure activities
generally. account for a significant proportion of household
spending in the Russian Federation (15.2%) and Belarus
The Commonwealth of Independent States (CIS) has also (10.7%), although this share is much lower in Tajikistan
been instrumental in shaping policy and legal frameworks. (0.2%) and Kyrgyzstan (0.4%). Attendance in cultural
As a regional organization formed during the break-up of institutions is rising in most cities, particularly in the
the Soviet Union, whose members include Armenia, Russian Federation.8
Azerbaijan, Belarus, Kazakhstan, Kyrgyzstan, Republic
of Moldova, the Russian Federation, Tajikistan and
Uzbekistan, the CIS has initiated a wide range of
partnerships and programmes related to culture, including 6
See: http://www.culturalpolicies.net/web/georgia.php?aid=61
the ‘Cultural capitals of the Commonwealth’ and the World 7
See: http://www.cisstat.com/eng/
8
See: http://www.cisstat.com/eng/
73
CASE STUDY 22 GEORGIA such as SOHSA (‘Saving our Heritage, saving ourselves’),
AZERB based in Tajikistan (see also Case Study 96).
Dilijan (Armenia)
Revitalizing a former Soviet
ARMENIA In general, the contribution of the creative industries to
cultural capital
the economy is small, but growing. In the Russian
Federation, where the creative economy accounts for 6%
TURKEY
Dilijan, a town of 13,500 people

of GdP,9 the creative industries represent 8% of
IRAN
(ISLAMIC
located in north-east Armenia, is REPUBLIC OF)
known for its long history and tranquil surroundings and lies Moscow’s Gross Regional Product and 7% of Saint
in the centre of one of the largest protected areas in the Petersburg’s.10 Saint Petersburg aims to increase this
South Caucasus – Dilijan National Park. Owing to its numer- figure to 12% by 2030 through the establishment of new
ous rest houses, spas and health retreats, Dilijan was one creative spaces and a favourable legal and administrative
of the Soviet Union’s leading cultural centres in the early environment for investors and non-governmental
twentieth century, serving as the creative retreat for the enterprises related to the creative industries. Supporting
Union of Soviet Composers, the Union of Artists of the USSR multi-disciplinary education is also among its strategies.11
and the Union of Soviet Film-makers. Numerous artists, di-
Cultural tourism has played an important role in the
rectors, musicians and actors visited Dilijan, often staging
performances during their visits, transforming the town into
a magnet for cultural tourism. Following the fall of the Soviet region’s social and economic development. Research
Union, Dilijan’s population diminished, its economy declined conducted in 2012 showed that the tourism sectors of
and its traditional architecture (marked by stone buildings Azerbaijan, Kyrgyzstan, Kazakhstan, Uzbekistan and
featuring wooden balconies and Molokan elements) fell into Belarus are among the top 10 most rapidly growing in the
disrepair. A lack of urban planning, zoning regulations, a world. In Georgia, 23.5% of GdP is generated by tourism
distinct city centre, and pedestrian access exacerbated these and travel – a greater share than any country in the region
problems. – and 24.4% of the workforce is employed in the tourist
industry including jobs indirectly supported.12 Some
In recent years – thanks to an infusion of investment from countries, such as Georgia, Armenia, Kyrgyzstan and
Azerbaijan, have focused on international tourism, while
the Armenian diaspora – Dilijan has re-emerged as a centre
others have emphasized domestic tourism. Most
of culture and education, in particular through a series of
projects targeting youth. In 2014, the establishment of UWC
Dilijan, a high school for gifted students aged 16 to 19, con- countries in the region are developing national
stituted the largest educational project in Armenia and today programmes for tourist development, with a view to
employs 100 local residents. The restoration of Sharam- increase tourism jobs and tourist flows (as in Kyrgyzstan)
beyan Street has been another project contributing to Dili- or to create tourism clusters (in the case of Kazakhstan).
jan’s revitalization. This project included craft workshops, a The Russian Federation has a similar programme entitled
history museum and the creation of the TUMO Centre for ‘development of Culture and Tourism 2013-2020’.
Creative Technologies, which offers free training to youth in Cultural tourism plays a crucial role in many cities’
animation, game development, web design and film-mak- economies, notably in historic cities such as Suzdal
ing. Many of these projects were supported by the Dilijan (Russian Federation), where 50% of the Gross Regional
Product is based on cultural tourism.13 Measured in
Development Fund (launched by the founders of UWC Dili-
terms of number of visits, Saint Petersburg comprises
jan), which is financing a series of urban planning docu-
ments to relaunch Dilijan as a centre of education, culture
and recreation. 0.6% of the global tourism industry (as well as 25% of the
Source: Strelka Institute for Media, Architecture and Design,
Russian Federation’s internal tourism).14
Both tangible and intangible heritage have proven to be
essential economic pathway for cities, particularly in small
However, the culture sector is not considered as a and medium-sized cities, which employ culture-based
promising source of jobs in most countries, with the tourism to improve their attractiveness. Festivals and
exception of Central Asia. Cultural jobs remain poorly events celebrating intangible heritage are often the
remunerated and are not seen as a viable option for young defining event in the life of small cities. Projects uniting
people. Those employed by cultural institutions receive several cities on the basis of a common intangible
typically below-average wages, although Ukraine and heritage have been particularly successful, as seen
Tajikistan are exceptions. In the Russian Federation, the along the former Silk Road. A renaissance of handicrafts
number of available jobs in cultural institutions is decreasing has also served as a basis for the regeneration of
due to cost-cutting efforts – a strategy which has been
highly criticized. In response, Azerbaijan has developed a 9
See: http://www.copyright.ru/news/main/2012/2/17/wipo_research/
strategy for improving human capital in the sphere of 10
See: http://calvertforum.org/images/uploads/documents/calvert_
research_2014.pdf
culture. By contrast, in the southern Caucasus and Central 11
See: http://www.peterburg2030.ru/priorities/economic/growth/crea-
Asia a growing share of the workforce is employed in tive/
the artisanal crafts industry. Most craftspeople sell their 12
See: http://www.wttc.org/-/media/files/reports/economic-impact-
research/countries-2016/georgia2016.pdf
products either from their homes, at specialized sales 13
See: http://tourism.interfax.ru/ru/interview/interview/555/
centres and online shops, or through dedicated projects, 14
See: http://www.peterburg2030.ru/priorities/economic/growth/tou-
rism/
74
STUdY AREA
Dilijan (Armenia)
© RVVZ Family Foundation
many local economies, as cities position themselves as CASE STUDY 23

manufacturing centres. Efforts are being made to
KAZAKHSTAN
Mary (Turkmenistan)
revitalize local knowledge and improve distribution
UZBEKISTAN
K
In the face of modern challenges, IDJAN
networks, although many challenges remain. In a context

TURKMENISTAN
TAJIK
an ancient Silk Road city invests

where many historic sites remain in poor condition and SLAMIC REPUBLIC OF)
in its future through culture AFGHANISTA
lack infrastructure, the tourism potential has stimulated

the launching of many urban restoration projects. The city of Mary is Turkmenistan’s fourth largest city, lying
Although some of them were criticized for their mitigated 30 km away from the ancient city of Merv – its historic pre-
impact on conservation, a few have shown positive decessor and a UNESCO World Heritage property since 1999.
results. City and regional-level programmes for tourist With its strategic location on the fabled Silk Road, Merv was
development have also become a trend in recent years, as once a thriving centre of culture and commerce, known for
seen in Yaroslavl (Russian Federation). its pottery, glasswork, jewellery and fabrics woven from silk,
wool and cotton, as well as its schools of medicine, mathe-
City branding is also becoming an increasingly common matics, astronomy, philosophy, geography and physics.
practice. Over the last 7 years, about 100 cities in the Merv was a holy city for Zoroastrianism and over the cen-
region have officially begun to work on their brand,
turies has hosted a diverse assortment of Buddhist, Jewish,
Manichaean and Christian populations. The city of Mary, es-
particularly in Ukraine, the Russian Federation, tablished in 1884 when the river Murghab changed its
Kazakhstan and Belarus. However, in the absence of a course, is known in its own right for the Mary School of
systematic marketing approach, these efforts are Painting, developed in the 1980s.
sometimes reduced to simply producing a motto or a logo.
In some cases, cities address place marketing through More recently, Mary was designated a cultural capital of the
competitions, strategic sessions, tenders and grants, Commonwealth of Independent States (CIS) in 2012 and a
often involving residents. The popularization of ‘Cultural Capital of the Turkic World’ in 2015, inspiring dozens
architectural heritage and the construction of modern of new projects – new airport facilities, hotels, a public library,
architecture also serve to develop city identity. the Mary Velayat Local History Museum, the Gurbanguly Hajji
International architects have been invited to raise the mosque and the luxurious Rukhyet Palace – although these
profile of capital cities such as Astana (Kazakhstan). The
projects were largely ad hoc in character. Furthermore, despite
existing barriers to international tourism, the national gov-
‘Architectural treasures of Ukraine’ programme runs a ernment has poured its efforts into organizing regular con-
social media campaign highlighting architectural ferences, festivals and mass events, while international
landmarks to foster a sense of local identity. Other archaeologists, many from the Institute of Archeology at Uni-
programmes aimed at unleashing their cities’ cultural versity College London, continue to travel to the city. While
potential have been launched, such as the ‘Culture Capital the underrepresentation of local Turkmens in the process of
of the CIS’ and ‘Cultural Capital of Small Russian Cities’ maintaining the city’s cultural heritage remains a challenge,
programmes. Event-based marketing is also widespread, Mary nonetheless represents an important example of a ‘city
as many cities host festivals, fairs, art biennales and of culture’ in the region.
cultural forums. Large-scale events can contribute to Source: Strelka Institute for Media, Architecture and Design,
these strategies – as seen with the UEFA 2012 European

football championships in Ukraine – although their

long-term impact is sometimes contested. conventions and the endorsement of European Union
cultural legislation. Culture is increasingly recognized as
a lever of development, particularly in heritage cities,
LOOKING TO THE FUTURE: although the role of culture for social sustainability
TOWARDS A COMPREHENSIVE VISION remains underestimated. Overall, the repurposing of
OF URBAN REGENERATION Soviet and pre-Soviet industrial buildings and
infrastructure is gradually expanding. Innovative culture-
After decades of ad hoc approaches, a comprehensive based urban strategies have been initiated in several
vision for urban conservation and development has begun cities. For example, the transformation of Ulyanovsk
to emerge. Countries have shown a willingness to join the (Russian Federation) into a cultural capital was stimulated
international community in the ratification of UNESCO by the creation of a dedicated foundation to manage
75
urban cultural projects. Culture is also a key component Georgia, the Republic of Moldova and Ukraine), where
of Saint Petersburg’s Strategy for Socio-economic community-led ‘Urban Strategies in Historic Towns’
development, which includes the transformation of (COMUS) will be developed to optimize and assess the
industrial buildings into creative spaces and various tax economic and social impacts of restoration. Sustainable
and economic incentives. Larger urban strategies based development Strategies were also drafted for three
on cultural industries are also slowly emerging, mostly in historic cities in Uzbekistan, as part of an initiative led
the Russian Federation, although the wider expansion of by the Cities Alliance. These strategies aimed at helping
the creative sector faces several barriers, from a lack of these cities develop their local economies, while training
economic incentives, public support and effective government officials to foster more participatory
copyright laws. Although a majority of cultural activities decision-making processes. In the Russian Federation,
are still state-funded, independent creative and cultural the ‘Preservation and development of Small Historic
industries are gathering momentum in both capital and Cities’ programme, supported by the Ministry of Culture
medium-sized cities, where cultural clusters often reuse and the World Bank, will rebuild infrastructure, restore
former industrial buildings. cultural sites, modernize engineering networks and
redevelop street spaces, in order to lay the basis for a
These culture-based strategies have helped to develop cultural tourism-based economy.
local economies or to address inequalities. To encourage
the development of depressed urban areas and improve Revitalizing large, often degraded public spaces is another
the urban environment, local businesses often sponsor key area of intervention. Most public spaces in the region
competitions related to intangible cultural heritage. The were designed according to Soviet principles, resulting in
‘Our City’ project in Norilsk (Russian Federation), funded vast monumental squares and wide boulevards for public
by a major mining company, aimed to improve public gatherings and social life. Today, public spaces occupy half
spaces, boost cultural institutions and increase the of the land in cities of the region. As many of these spaces
number of cultural events in the city as a means of are obsolete and poorly maintained, the focus is switching
fostering economic growth. Moreover, the development to their redevelopment on the part of city governments
of arts and craft industries has worked to fight gender and residents’ associations. For instance, through the’ My
inequality in Central Asia and the Caucasus, particularly Street’ programme in Moscow (launched in 2015 and
in Turkmenistan, Tajikistan and Azerbaijan. In Tajikistan, expected to be completed in 2018), streets in the historic
the National Association of Business Women, a major centre are being redeveloped according to new standards
non-profit organization, is working to reduce poverty in and norms, while innovative transport solutions are being
the country by supporting and developing small and introduced to encourage greater use of public spaces.
medium-sized business, making grants to businesswomen Large-scale landscaping and street redevelopment has
to facilitate their participation in the cultural industries also been carried out in the run-up to major events, as
(see also Case Study 54). evidenced by the creation of Millennium Park in Kazan
(Russian Federation) ahead of that city’s millennium
Several projects aimed at revitalizing historic cities celebrations.
have been initiated in recent years. The Regional
Redevelopment Project for the historic city of Kakhetti in The redevelopment of green spaces and embankments
Georgia, implemented by the Georgian government is a particular priority. Embankments have been
between 2012 and 2016, has transformed the city regenerated in Batumi (Georgia) and dilijian (Armenia),
through upgraded housing, street improvements and while old parks are being reconstructed in many cities. In
infrastructure development. As a result, tourism has the Russian Federation, these redevelopments often
increased, sparking economic growth and empowering involve international design competitions to elaborate
residents to maintain their homes and develop new both the aesthetic concept and the service model to
businesses. Another project, in Lviv (Ukraine), led by the address the needs of users. Gorky Park, Zaryadye Park
Lviv City Institute and the Krakow Institute of Urban and the Moskva riverfront in Moscow were all redesigned
development, is finding similar success with a more through international competitions. The improvement of
bottom-up, community-based approach. There, locals are public spaces is typically carried out by city governments.
engaged in the regeneration of a courtyard space in Resident- and NGO-led initiatives are assuming
Podsamcze, one of the city’s poorest areas. Community a n increasingly important role in Kazakhstan and
workshops have been organized to plan and design its Kyrgyzstan, which received support from international
public spaces, while artisans have been invited to restore foundations such as the as the Soros Foundation-
the facades of its historic buildings. Kyrgyzstan to launch street furniture projects and the
development of public spaces. However, most of these
Integrated approaches are also evident in projects projects are conducted on an ad hoc basis and integrated
targeting small and medium-sized cities. The ‘Project on approaches remain limited.
the Regeneration of Cultural Heritage in Historic Towns’
is being implemented in 25 small and medium-sized Culture has been a key part in large, and sometimes
cities in six countries (Armenia, Azerbaijan, Belarus, contested, showcase events. In Belarus, the dozhinki – a
76
STUdY AREA
Ashgabat (Turkmenistan)
© Limpopo/Shutterstock.com*
celebration of the harvest – has served as a driver of PERSPECTIVE 8

urban restoration. Each year, one city is designated as the WORKING WITH INTERNATIONAL PARTNERS TO BOOST
capital of this national event, which leads to the THE POTENTIAL OF A UNESCO CREATIVE CITY
restoration of the chosen city’s streets and buildings. Olga Mezina Deputy Head, Ulyanovsk City Administration (Russian Federation)
However, in some cases this revitalization has resulted in
the demolition of certain historic buildings. Other
Ulyanovsk, Russian Federation, has a economy sector, as indicated in the City
long-standing connection with literature, Socio-economic Development Strategy
revitalization projects have been implemented in as demonstrated by its 2015 designation 2030. While developing the Strategy,
preparation for even larger events, such as the 2014 as a UNESCO City of Literature. The certain challenges in Ulyanovsk were re-
Winter Olympics in the Russian Federation, the UEFA renowned Russian writer Ivan Goncharov vealed, such as the outflow of highly
Europe football championships in 2012 in Ukraine, and was born in Ulyanovsk, and in 2012 qualified persons due to the lack of eco-
the 2,700th anniversary of the city of Kulob (Tajikistan). Ulyanovsk initiated the 200th anniversary nomic opportunities, and few attractive
celebrations that took place across Russia. architectural sites and public spaces, etc.
However, many obstacles remain in the implementation
Ulyanovsk is also the birthplace of Nikolay
Karamzin, author of the ‘History of the Communities have an important role in
of this culture-based vision, including the remnants of Russian State’, whose 250th anniversary this process, and the municipality values
Soviet-era standardized urban planning, as well as the low in 2016 was marked by countrywide their contribution to the city’s cultural
priority given to culture in the face of political instability celebrations. development, as evidenced by their sup-
and infrastructures needs. Citizen participation remains port of local initiatives and their involve-
limited, due to an overall disenchantment with In the early 2000s, culture became one ment in policy-making. Together with
government and the urban environment. Education of the development priorities in Ulyanovsk. civil society, the city is currently improving
systems related to urban conservation and regeneration
The Ulyanovsk sustainable development urban public spaces such as parks, gardens
strategies in culture were recognized by and streets. For example, citizens are in-
are outdated and the network of professionals the international community for the first volved in the design and implementation
throughout the region needs to be strengthened. time in 2011 when the city was named of revitalization projects in the abandoned
However, new types of educational programmes are Cultural Capital of the Commonwealth Park of Peoples’ Friendship. Furthermore,
emerging in the Russian Federation, which are of Independent States. From then on, citizens can decide which projects are
reinvigorating urban thinking. the city began strengthening partnerships financed and developed for public spaces
with foreign countries. The annual Inter- by the municipality, totalling about
To further optimize the impact of culture on urban
national Cultural Forum, for instance, is RUB 15 million annually (US$233,000).
organized in Ulyanovsk, covering world
development, therefore, a cross-cutting approach should cultural trends and best practices, and The fact that Ulyanovsk joined the UNESCO
be adopted, one that combines urban heritage, cultural unites government, cultural managers, Creative Cities Network attests to a bal-
and creative industries and the popularization of urban researchers, creative workers and the anced and timely strategy that will allow
culture. Firstly, the meaning of heritage should be private sector. the city to move to the next level of inter-
enlarged to include Soviet architecture. Festivals and national cooperation. The city’s rich cultural
emerging creative industries should be better supported
Additional municipal funding has led to heritage opens up immense potential for
and streamlined into branding strategies. Intangible
the growth and quality of cultural products development in the future. We are very
that, in turn, has increased cultural in- interested in external cooperation with
heritage should also be better studied and popularized. vestment. In 2014, RUB 135 million the world cultural community as well as
Access to museums and cultural institutions should be (US$2.1 million) was allocated to funding in unity of culture, business, tourism,
improved, especially in medium-sized cities, through the the city’s cultural organizations, three economy and other spheres of the city.
modernization and transformation of existing structures. times as much as in 2001. In addition to Our main goal is to improve the quality
Secondly, measures should also be taken to stimulate developing the public cultural sector, the of life of our citizens and to create suitable
private investment and strong priority should be given to
city has focused on building the creative conditions for their self-realization.
job creation, especially in small cities. The extensive
regional network of educational and research institutes
linked to urban conservation and regeneration should be
modernized, in order to develop practice-oriented and
NTIC-based training, improve responsiveness to social
change and foster exchanges between different
educational institutions and experts.
77
Coordinator of the regional study: THE SRISHTI INSTITUTE OF

ART, DESIGN AND TECHNOLOGY
The Srishti Institute of Art, Design and Technology is an art and design
institute set up in 1996 by the Ujwal Trust in Bangalore (India), with
the objective of providing art and design education at the
undergraduate, postgraduate and PhD levels. In the framework of the
UNESCO Chair in Culture, Habitat and Sustainable Development, the
Institute has developed an integrated approach to conservation and
urban development, focused on the strategic role of creative industries
and heritage conservation.
The Srishti Institute has built several international partnerships in the

field of cultural heritage and management, and has conducted
numerous projects throughout South Asia. The Institute is a leading
research centre in cultural industries development and management,
urban conservation and planning, as well as sustainable urban
development.
78
Hawa Mahal Palace, Jaipur (India)
© f9photos/Shutterstock.com*
STUdy area
Maldives, Nepal, Pakistan, Sri Lanka.
HIGHLIGHTS
Home to some of the oldest urban civilizations, South Asia
now contains many of the largest and densest cities in the
world, which are strongly marked by informality and urban
poverty.
The authenticity and integrity of the region’s urban heritage

is increasingly threatened by rapid urbanization, inadequate
planning and standardized urban renewal projects.
Risk mitigation policies and preventive management
mechanisms are currently insufficient for the protection
of urban heritage, particularly in view of the region’s
vulnerability to natural disasters.
Urban conservation and regeneration processes have recently
become the object of government policies, notably through
an increased focus on public space, but they remain marginal
in overall urban discussions and agendas.
As heritage conservation is perceived to be a low priority
within development agendas, the needs of the poor require
particular attention in urban regeneration, building on the
region’s innovative use of pro-poor policy frameworks.
In a context where community participation remains
insufficient, culture-based urban strategies can offer an
opportunity for broader, more equitable and effective
community participation.
Building inclusive and sustainable tourism strategies is
essential, as mismanaged tourism tends to commodify urban
heritage and alter its authenticity, while ignoring the needs
of local populations.
79
SOUTH ASIA: AN ANCIENT CRADLE OF densest city. The urban population is expected to continue
URBANITY WITNESSING to grow substantially over the next three decades, further
UNPRECEDENTED URBAN GROWTH straining urban services and environmental resources.
India’s urban population is projected to double by 2050
South Asia is widely regarded as one of the oldest centres from 410 million urban dwellers in 2014 to 857 million in
of urban life. Intersected by numerous rivers and 2050. Despite a relatively young population, the ageing
surrounded by the world’s tallest mountains, the Indus of the urban population is an emerging trend, particularly
River Valley was home to one of the earliest urban in India (United Nations, 2014).
civilizations, the Harrapan, which developed dense urban
settlements and irrigation-based agriculture as early as
I
C ASE STUDY 24
3000 BC. Major cities included Harappa, Mohenjo-daro,
Kandy (Sri Lanka)
Dholavira, Ganeriwala and Rakhigarhi, which were
Protecting the cultural values
notable for their baked brick houses, elaborate drainage
of a sacred site within a
systems, water supply systems and clusters of large non- SRI LANKA
rapidly developing urban area
residential buildings. Trade with Mesopotamia and
Central Asia through the Silk Road ensured the prosperity As the southern tip of Sri Lanka’s
of this civilization until 1800 BC, when a worsening ‘Cultural Triangle’, the city of Kandy
climate and increasing conflicts led to the mass migration has been the cultural capital of the
of its population to the East. Numerous settlements country since its founding in the four-
developed in subsequent years along coastlines and teenth century and the last seat of the royal power until the
rivers, in the fertile plains and on the subcontinental entry of British troops in 1815. The second largest city in
plateau. However, beyond monumental structures such Sri Lanka, Kandy was inscribed on UNESCO World Heritage
as temples and palaces, little evidence remains of this List in 1988. Lying at an elevation of 465 m, the city
early urbanization. A great number of towns were stretches along an artificial lake within a lush natural envi-
established from 1500 BC onwards for commercial,
ronment. Its spatial organization is characterized by wide
open spaces, including an elongated square and a public
military and religious purposes, many of which have been garden. This major sacred site hosts the Tooth Relic Temple,
continuously inhabited. a major pilgrimage site for Buddhist believers. Over the last
decades, urban pressures – including infrastructure and
The expansion of the British Empire into India began in high-rise development or uncontrolled private construction
the 1600s, strongly shaping urbanization patterns for - together with tourism-related commodification of cultural
centuries to come. Spearheaded by the British East India practices have altered the city’s urban heritage, necessitating
Company and their search for markets, raw materials and a comprehensive approach to urban planning.
political influence, the British colonialization of India
(which continued until 1947) led to the creation of cities To that end, line institutions including the Municipal Council,
marked by cantonments and racial segregation. Although the Urban Development Authority and the Central Cultural
British rule did not have an explicit urban agenda, the
Fund have worked together since World Heritage inscription
to build urban conservation and management policies and
development of new settlements outside the historic instruments. The Municipal Council was declared as an
urban cores, the installation of an extensive railroad Urban Development Area and the surroundings of the Tooth
network throughout the region and the introduction of Relic Temple as a sacred area, which facilitated the emer-
agricultural reform policies resulted in new patterns of gence of a shared, global approach. Promoting architectural,
urbanization. Settlements along railroad routes expanded landscape and environmental quality, as well as developing
into trading centres, mines and mills. Coastal cities such urban facilities in conservation areas were among the key
as Surat, Mumbai and Kolkata grew as a result of maritime objectives as part of Kandy’s development plan. The imple-
trade. Two distinct types of city emerged in this period: mentation of zoning, development control and building
presidency towns (administrative centres such as guidelines have contributed to protect the integrity of
Mumbai, Kolkata and Chennai) and hill towns. historic areas. Conservation activities also prompted the
Urbanization level increased rapidly after independence,
revitalization of crafts and stone carving skills, reviving a
near-extinct profession.
and again in the 1980s, with urban growth fuelled by
internal migration and high birth rates. Source: Srishti Institute of Art, Design and Technology, report for Study
Area 5
Today, South Asian cities are among the largest and As a product of this rapid urban growth, megacities are
densest in the world. South Asia is currently home to particularly widespread in South Asia. The region is home
around 1.77 billion people, a figure which is expected to to five megacities of 10 million inhabitants or more –
reach 2.31 billion by 2050. The overall urban population Delhi, Kolkata, Mumbai (India), Karachi (Pakistan) and
for the region is 34.39%, although this figure is much Dhaka – which rank among the top 14 largest cities in the
lower in Nepal (18%) and higher in the Islamic Republic world (United Nations, 2014). The development of
of Iran (73%). Population density is particularly high in megacities is expected to intensify in the coming decades,
central India, Afghanistan and smaller states such as the as cities continue to expand their administrative
Maldives, while Dhaka (Bangladesh) is now the world’s boundaries by incorporating surrounding settlements.
80
STUdY AREA
(India),1836
© Morphart Creation/Shutterstock.com*
Significant and unplanned urban expansion into peri- population living below the poverty line is greater in
urban and rural areas has also strongly reshaped urban areas than in rural ones. In many cities, the urban
traditional land use patterns, while the expanding poor lack access to basic public services, including water,
economy has increased demand for natural resources. sanitation, education and health. The formal economy has
Environmental degradation now poses a serious threat to been unable to keep pace with the growing population of
the region’s growth prospects, as well as its capacity to unskilled labour and unemployment is rising in most cities.
achieve sustainable development. A shortage of housing is also a pressing social issue, driven
by rising prices and a lack of adequate transportation to
Informality has been a defining feature of South Asian suburban areas. As many of the region’s large cities are
urbanization and urban poverty is an enduring challenge. located in earthquake, storm or flood-prone areas,
Currently, 35% of the urban population – or 190.7 million overpopulation increases their vulnerability to disasters.
people – live in slums. In 2007, the figure was estimated
at 32.1% in India and 70.8% in Bangladesh (UN-Habitat, Migration from rural to urban areas is a continuing
2010). These slums are growing twice as fast as other phenomenon in most countries. In cities, migrants search
urban areas. Throughout the region, the share of the for employment opportunities and better social,
educational and health services. Migration also occurs
C A S E ST U DY 25 within rural areas, revealing the persistent dominance of
CHINA the agricultural sector. International migration is also
Bhaktapur (Nepal)
common in the region; every year, 1.5 million workers
Post-disaster recovery of
migrate abroad from South Asia, mostly to the Gulf
NEPAL
Nepal’s cultural heritage INDIA
region, to perform low-skilled, temporary work (Ozaki,

2012). The number of internal migrants and internally-
BAN
The earthquakes of April and May 2015 shattered lives and

reduced structures that had stood for centuries to rubble. displaced persons is also high, due to conflicts (as seen in
Following the disaster, which left more than 8,000 people Afghanistan), rural-urban disparities and environmental
dead and thousands more injured, over 80% of the temples factors.
and historic structures in Bhaktapur were destroyed, with
Kathmandu Durbar Square suffering particular damage.
Heritage tourism has been greatly affected, weakening the URBAN HERITAGE: A VALUABLE BUT
local economy. As natural disasters are becoming more THREATENED ASSET FOR SOUTH ASIAN
frequent in the region, with several recent cases of major CITIES
floods and earthquakes, infrastructure interventions, urban
development and urban conservation must take into account
issues of mitigation and long-term resilience, as well as the The diversity of South Asia’s urban heritage is an
specific needs of the local population. important resource for the region’s cities. Resulting from
the different layers of urbanization processes from
UNESCO has been working with the government of Nepal, successive waves of invasion and migration, as well as the
in particular the Department of Archaeology, to protect, various geographic and political situations across the
monitor and safeguard the damaged heritage sites. In 2015, region, this diversity is reflected in both the built
UNESCO launched a three-year project for the regeneration environment and in strong local traditions. The mandala
of the Kathmandu Valley World Heritage property with the planning scheme of early Indian cities (a geometric
Ministry of Culture, Tourism and Civil Aviation of Nepal. The pattern representing the cosmos, often associated with
Jaipur), the dense, irregular urban grid framework of the
project is being implemented in partnership with the Hainan
medieval cities and the organic configuration of later
Province Cihang Foundation and targets the restoration of
the local economy by creating new employment and training
opportunities for cultural tourism. It will also focus on efforts urban ensembles are among many urban patterns found
to enhance the capacity of national institutions in the areas across the region, particularly in its 30 World Heritage
of research, establishing a database of Nepal’s cultural urban properties.1 Twenty-one intangible practices are
heritage. also inscribed on UNESCO’s Representative List of the
Source: Srishti Institute of Art, Design and Technology, report for Study
Area 5
1
See: http://whc.unesco.org/
81
Intangible Cultural Heritage of Humanity2 and reflect the prioritization of formulaic projects, which are intended to
cultural vitality of the region’s ethnic groups. Urban and generate immediate revenues, to the detriment of place-
architectural features, as well as cultural practices and based approaches, which require a thorough analysis of
lifestyles, are recognized as essential components of each the local context within participatory processes.
city’s identity. More recently, Varanasi and Jaipur (India)
have joined the UNESCO Creative Cities Network. The commodification of urban heritage for tourism
purposes has also altered the authenticity and integrity
Urban heritage has also been at the core of numerous of historic areas. Urban heritage has been a key asset in
initiatives to foster cultural dialogue and strengthen risk the development of cultural tourism across the region,
preparedness. The Silk Road trade route in South Asia representing a significant share of the regional tourism
represents one of the most ancient and renowned industry. However, in historic areas, the tourism-based
networks for the dissemination of ideas and cultural economy has sometimes resulted in the loss of the
expressions. Intangible cultural heritage has also served economic-residential mix. The diversity of traditional
as a basis for dialogue between different communities. activities has often been affected, particularly crafts skills
The Phool Walon Ki Sair Festival, for instance, brings associated with building construction and repair, resulting
together both Hindus and Muslims in delhi (India). in a loss of identity and sense of place. The development
Cultural practices are also part of disaster mitigation of new infrastructure to accommodate tourism has also,
efforts. In India, the Hunnarshala Foundation has engaged in some cases, altered the urban fabric and local
in post-earthquake regeneration and the revitalization of
traditional building techniques, notably in Bhuj, Gujarat CASE STUDY 26
(India) following the 2001 earthquake. In Pakistan, the Isfahan, (Islamic Republic of Iran) A
Heritage Foundation revitalizes local skills and

RAQ
A centuries-old model of IRAN (ISLAMIC
REPUBLIC OF)
techniques for post-disaster reconstruction through the urban planning adapts to KUWAIT
intensive training of local communities. In Kandy (Sri the challenges of

Lanka), the restoration of the Sri dalada Maligawa, a contemporary urbanization SAUDI ARABIA BAHRAIN
QATAR
UNITED ARAB
temple which was severely damaged in successive

EMIRATES
conflicts, helped to bring communities together, while Iran’s third-largest city, Isfahan, has served as a model of
also revitalizing stone carving skills within the local successful urban planning since 1598, when Shah Abbas
community. This work is now ongoing in Kathmandu moved his capital to the city and commissioned his chief
(Nepal).
architect, Shaykh Bahai, to construct a series of striking new
public spaces. These included Meidan Emam (also known
as Naqsh-e Jahan Square) and its surrounding buildings –
However, this outstanding urban heritage faces major the Shah Mosque, the Ali Qapu Palace, the Sheikh Lotf Allah
threats from rapid urbanization and inadequate planning. Mosque and the Isfahan Grand Bazaar, the longest vaulted
Beyond a few small-scale projects, overall trends in terms bazaar street in the world. Built in 1603, the 300 metre-long
of urban development are not very encouraging. Allahverdi Khan Bridge, one of 11 bridges in the city, formed
Modernization projects and pressures for new another crucial part of Shah Abbas’s urban plan, and today
infrastructure and commercial developments often result remains one of the city’s most important landmarks. Meidan
in the demolition, division or replacement of historic Emam was designated as a UNESCO World Heritage prop-
structures and urban ensembles, as witnessed in Tehran erty in 1979, followed by the Masjed-e J mé in 2012, while
(Islamic Republic of Iran) and Lahore (Pakistan). The the entire city was named a UNESCO Creative City of Crafts
insufficient maintenance of built structures, often due
and Folk Art in 2015, in recognition of its status as a centre
to a lack of awareness of heritage values or a lack of
of traditional Persian handicrafts.
available resources, reinforces this degradation process. Yet reconciling Isfahan’s rich heritage with the contemporary
Throughout the region, historic areas have often been challenges of urbanization has proved difficult. The demoli-
neglected, while illegal, chaotic development has tion of older buildings to make way for new developments
worsened the existing infrastructure. Urban renewal has contributed to gentrification, while the construction of
projects have also often led to the internal displacement a new metro system to ease traffic congestion threatens sites
of populations and, therefore, a critical loss of cultural such as Allahverdi Khan Bridge. In response, the Iranian
identity and local memory. Cultural Heritage, Handicrafts and Tourism Organization
(ICHHTO), established in 1986 and administered by the
These modernization projects are often designed based Government of the Islamic Republic of Iran, has worked with
on standardized solutions, inspired from imported
UNESCO on several important initiatives, from reducing the
models, which are insensitive to local resources and
building height of a proposed shopping centre near Meidan
Emam, to expanding the buffer zone around this site and
cultural frameworks. The significant increase in available others. Going forward, the ICHHTO’s goal is to ensure that
funding in recent years – through external investment or urban heritage and new urban developments in Isfahan
public-private partnerships – has sometimes led to the complement, rather than conflict with, one another.
Source: Srishti Institute of Art, Design and Technology, report for
Study Area 5
2
See: http://www.unesco.org/culture/ich/en/lists
82
STUdY AREA
Dhaka (Bangladesh)
© Kibae Park/Sipa Press/Flickr.com*
character. Moreover, the tourism economy has had a pollution, also induces gradual degradation, often amplified
tendency to give priority to the restoration of monuments by a lack of maintenance.
or the development of infrastructures addressing visitors’
needs, rather than to the upgrading of urban Heritage conservation is sometimes viewed as being in
infrastructure and services for local populations. competition with other development objectives, such as
addressing extreme poverty and social inequalities, which
Natural disasters and conflicts have also been responsible remain a persistent challenge for most South Asian cities,
for considerable damage to urban heritage in the region, although some have experienced rapid economic growth
as illustrated by the recent floods in the Swat Valley and the emergence of a middle class. Many larger and older
(Pakistan) or the 2015 earthquake in Kathmandu (Nepal). cities, such as Mumbai (India), dhaka (Bangladesh) and
In Afghanistan and Pakistan, ethnic conflicts have also led Karachi (Pakistan) are faced with the task of providing new
to the widespread destruction of urban heritage. In some infrastructure to meet the needs of a growing population,
cases, post-disaster relief efforts can also create additional but also upgrading existing, outdated infrastructure in
damage, due to a lack of coordination on temporary historic cores. Providing necessary infrastructure and
measures or reconstruction procedures between disaster services, while protecting the authenticity and integrity of
management personnel and heritage authorities. In dense urban heritage, is a distinct challenge.
urban areas, environmental degradation, particularly air
C A S E ST U DY 27 CHINA
FROM URBAN RENOVATION TO URBAN
REGENERATION AND CONSERVATION:
PAKISTAN
NEPAL
Muziris (India) BHUTAN
Urban regeneration as a A GROWING AWARENESS OF THE

IMPORTANCE OF CULTURE
BANGLAD
INDIA
catalyst for creativity in the
ancient seaport
Urban development became a priority on many national
An ancient seaport and vibrant urban agendas in the 1970s, as post-independence countries
centre auspiciously located at the emphasized national integration. The underlying
objective of these strategies was to manage the massive
SRI LANKA
heart of the spice route, Murizis,
India, has sought to revive the paths once travelled by rural to urban migration occurring at the time. Policies
were first focused on issues such as housing, basic
merchants and explorers to reflect the myriad historic and
cultural layers that make this ancient city the crossroads of
civilizations it is today. In the framework of the city’s Con- services, land regulation, economic development and
servation Development Plan, in 2009 the Muziris Heritage funding schemes. Some countries, such as Sri Lanka, gave
Project was launched to restore historic buildings, renovate a clear priority to housing. In other cases, as in Nepal,
existing canals and build new roads to improve accessibility urban development was part of larger regional planning
to different heritage sites. A key outcome of this cultural pol- policies, aimed at improving productivity, regional balance
icy is the Kochi-Muziris Biennale, the first to take place in and integration. As urban growth intensified, cities were
India, which has been organized since 2012 by the Kochi- increasingly considered as drivers for economic
Biennale Foundation, in conjunction with the Government development. In most countries, priority urban centres
of Kerala. This international exhibition of contemporary art were identified and national urban policies were
is held across the city in galleries, public spaces, heritage formulated, which often supported key economic sectors.
As centralized approaches to urban development failed
sites and abandoned buildings across Kochi, Muziris and the
to meet the basic needs of the growing urban population,
surrounding islands. The Biennale is supported by a broad
education programme and has generated positive benefits
for the local arts community. decentralization processes emerged in most countries
after the 1990s, with the objective of improving service
delivery at the local level. In more recent years, in the
Source: Srishti Institute of Art, Design and Technology, report for
Study Area 5
83
context of a growing ‘metropolization’, urban policies have Yojana scheme was launched by the government, in
specifically targeted the provision of infrastructure, the partnership with state governments, to foster the holistic
improvement of governance and the development of development of heritage cities while enhancing each
small-sized cities. city’s specific identity. In Sri Lanka, the Central Cultural
Fund provides resources for urban conservation and is
Generally, cultural heritage issues have not been involved in several cities. A number of urban
mainstreamed into the overall urban planning and conservation and regeneration projects were also
development framework. Fragmented or overly complex initiated with support from the World Bank and the Asian
governance systems have not provided a favourable development Bank in several Indian cities through the
ground for the implementation of integrated, culturally Inclusive Heritage-based City development Programme,
sensitive urban development strategies. Indeed, while the including the walled city of Lahore (Pakistan), Kandy and
mandates of heritage agencies mostly focus on Galle (Sri Lanka) and Thimpu (Bhutan). To foster
monuments, with a limited involvement in the urban areas capitalization and the dissemination of experience, a
beyond the property, urban development agencies are cultural heritage and sustainable tourism thematic group
usually untrained in heritage-related issues. In addition, was also established with the support of the World Bank
in a context of severe urban poverty, heritage to serve as a network of practitioners to mainstream
preservation has often been viewed as less relevant than heritage conservation into infrastructure, private sector
other development objectives. Housing policies have also and social development projects.
failed to explicitly address the old housing stock in historic
cores. In India, for example, although the 1994 National Local and national governments are now taking steps to
Housing Policy mentions the necessity of supporting integrate heritage protection into urban planning
historic residential areas defined as conservation areas, practices. The Jawaharlal Nehru National Urban Renewal
it has not succeeded in terms of practical implementation Mission is an ambitious, integrated programme launched
due to the insufficient capacity of most local agencies in by the Government of India in 63 cities. Other cities, such
designing and implementing relevant conservation as Lahore (Pakistan), Galle (Sri Lanka) and Jaipur (India),
schemes. have also included the issue of historic areas in their
master plans. In Jaipur, this initiative resulted in the
In recent years, several innovative programmes reflect a revitalization of the walled bazaars, the elaboration of a
paradigm shift in the approach to historic areas. In India, management plan for the Jantar Mantar World Heritage
the Heritage City development and Augmentation property and a comprehensive mobility plan for traffic
management in the walled city. In Pakistan, the
CASE STUDY 28 conservation of the Baltit Fort led to the regeneration of
The Heritage City Development and the surrounding settlements with improved living
Augmentation Yojana (HRIDAY) (India): standards, including piped water and sanitation services.
towards integrated urban regeneration In Pakistan, several regional and local programmes are
under way, notably in Punjab and Lahore, to improve
in Indian historic cities
urban governance and upgrade infrastructure. Other key
In January 2015, the Ministry of Urban Development of urban development projects are being conducted in
India set in motion a national programme to conserve and Bhaktapur (Nepal), Colombo (Sri Lanka) and Samdrup
revitalize historic urban areas. The programme seeks to un- Jongkhar (Bhutan). In addition, the Indian National Trust
dertake strategic and planned development of heritage for Art and Cultural Heritage (INTACH), the department
cities, with a view to improving the overall quality of life. of Archaeology of Nepal, the Central Cultural Fund of Sri
Particular attention is paid to sanitation, security, tourism Lanka and the Iran Cultural Heritage, Handicrafts and
and heritage revitalization. Activities target notably the de- Tourism Organization (ICHHTO), among others, have
velopment, conservation or revitalization of heritage sensi- made great efforts to safeguard their national heritage
while fostering sustainable urban development. UNESCO
tive infrastructure, service delivery and infrastructure
has led the Indian Heritage Passport Programme, which
provisioning in historic city core areas and the implementa-
tion of heritage inventories (covering built and intangible,
as well as natural heritage). The programme also focuses on focused on heritage-based tourism as a driver for local
local capacity-building to promote inclusive heritage-based development by supporting Indian states in packaging
activities and economic activities aimed at enhancing the and marketing their cultural tourism destinations. Several
livelihoods and cultural identities of cities. Particular efforts cities have also introduced special heritage zones within
are taken to establish and manage effective public private their master plans.
partnerships for adaptive reuse and urban regeneration.
Twelve historic cities have been identified to benefit from Urban conservation and regeneration efforts have given
the programme. The expected budget for the projects amounts particular emphasis to the issue of public space. Urban
to around US$100 million. Currently under implementation, professionals and artists are regularly reflecting on urban
environments and identities. In Pondicherry (India),
the programme is expected to be completed in 2017.
Source: Srishti Institute of Art, Design and Technology, report for following a request by the local government, designs were
prepared for a pedestrian priority area. In delhi (India),
Study Area 5
84
STUdY AREA
Bazaar of Kashan (Islamic Republic of Iran)

© Matyas Rehak/Shutterstock.com*
C A S E ST U DY 29 TURKMENISTAN
UZBEKISTAN
sustained community consultations led to the elaboration
Bamiyan (Afghanistan)
AMIC
C OF) of a landscape scheme for Hazrat Nizamuddin Basti, a
Reconciling heritage historic neighbourhood in South delhi. The scheme is
now being implemented and managed by the community
AFGHANISTAN
preservation and community
needs in urban development PAKIS with the support of the Aga Khan Trust for Culture (see
and management Case Study 111).
Bamiyan has built on the preservation of heritage and the pro-

motion of creativity to support sustainable living conditions for GOVERNANCE FRAMEWORKS FOR
its inhabitants. The ‘Cultural Landscape and Archaeological Re- URBAN CONSERVATION AND
mains of the Bamiyan Valley’, a landmark on the branch of the REGENERATION
Silk Route which linked China and India via ancient Bactria,
National policies pertaining to urban conservation are
combines cultural and religious influences of numerous origins.
It was inscribed simultaneously on the World Heritage List and
contrasted across the region. Some countries, such as
the List of World Heritage in Danger in 2003. The city of
Bamiyan also joined the UNESCO Creative Cities Network in Bhutan and Sri Lanka, have clearly defined policies,
2015 as a Creative City of Crafts and Folk Art. institutions and strategies regarding urban heritage. Others,
including India, Islamic Republic of Iran, Nepal and Pakistan,
In 2012, the Ministry of Urban Development Affairs of the have institutional frameworks dedicated to heritage
Islamic Republic of Afghanistan drafted an Urban Develop- protection but which lack a strategic focus on urban heritage.
ment Plan for the city of Bamiyan. The Plan proposed a new due to political unrest in recent decades, Afghanistan is still
zoning scheme for the area, whose population is expected in the early stages of setting up a policy framework.
to grow from 50,000 to 1 million over the next 50 years,
and takes the cultural areas identified in the Cultural Master Governance systems involve different layers of
stakeholders at the city, state and national levels.
Plan, adopted in 2007, into consideration. This strategic doc-
Ministries of culture and urban planning are the key
ument lays the groundwork on which future development
projects can be evaluated – particularly for their impact on
the cultural landscape – and represents the ‘guiding vision’ players at the national level. At the subnational and local
for the future development of the city of Bamiyan and the levels, governmental agencies related to heritage
surrounding valley. protection, urban development and tourism also play an
important role, although coordination mechanisms at the
In 2015, the integration of the Management Plan for the national level are often unclear. NGOs have a growing
World Heritage property of Bamiyan within the Urban De- role in capacity-building and experience-sharing;
velopment Plan allowed for the proposal of strategic recom- examples include the Indian National Trust for Art and
mendations to reduce the impact of housing, transportation Cultural Heritage (INTACH) and the Heritage Cities
infrastructure, service infrastructure (electricity), industrial Network in India and the American Himalayan
Foundation in Nepal. Community-based organizations
and extractive facilities, and visitor accommodation facilities
are instrumental in creating awareness and generating
on the Outstanding Universal Value of the site, focusing in
particular on the authenticity and integrity of the archaeolog-
ical remains and the visual integrity and use of the landscape. livelihood opportunities. Many academic institutions are
involved in training, documentation and research related
The need to reconcile preservation imperatives and the provi- to urban conservation and regeneration, such as the
sion of much-needed basic infrastructure (such as water, elec- Afghanistan Research and Evaluation Unit (AREU), the
tricity, a road network and so forth) for a fast-growing Shejun Agency (Bhutan), INTACH, the Indian Heritage
population has led to the definition of limits of acceptable Cities Network (IHCN), the UNESCO Chair in Srishti
change, ensuring the prevention of any destruction or damage Institute and the Institute of Urban Affairs (India) and the
to the historic architecture, avoiding the stress produced by road University of Colombo (Sri Lanka). Most countries do not
and air traffic in the immediate vicinity of the World Heritage have a comprehensive framework in the absence of
specific government agencies responsible for urban
property, and respecting the boundaries and setting of the site.
Prepared by UNESCO conservation.
85
From the 1990s, decentralization processes were through the Aga Khan Foundation and World Monument
implemented in most countries with the aim of improving Fund-supported initiatives.
the efficiency of public policies with regard to poverty
alleviation and strengthening their accountability. Risk mitigation policies remain largely insufficient,
Political, fiscal and administrative responsibilities were particularly in view of the region’s vulnerability to natural
transferred to regional or local institutions in varying disasters. Protected areas and buffer zones have only
degrees. decentralization has paved the way for been in place in the region for about a decade and are
increased awareness of local contexts and needs, as well typically confined to World Heritage properties. While
as stronger community participation. However, it has also these regulations are effective with regard to
resulted in complex and unwieldy administrative systems. monuments, they are less effective on the urban scale. For
The fiscal capacities of local governments remain very environmental and heritage impact assessments, no
limited. As a result, project development and planning is specific legal framework exists. Where implemented,
mainly conducted at the national level, while local level these assessments remain ineffective, although they are
stakeholders are responsible for implementation and requested as a prerequisite for funding by international
monitoring. partners such as the World Bank and the Asian
Local capacity is still limited in most countries, particularly CASE STUDY 30

in technical and management areas. Although some
AFGHANISTAN
Rawalpindi (Pakistan)
countries, such as India and Sri Lanka, have skilled Incorporating the Historic
professionals, local-level staff are still insufficiently
PAKISTAN
Urban Landscape approach
trained. Skills can be found in archeology or structural
INDIA
LAMIC
in the planning agenda IC OF)
engineering, notably in India, but urban conservation

skills are still inadequate. In addition, trained staff are Located in Punjab province, Rawalpindi is among the largest
usually employed in the conservation of listed structures urban centres in Pakistan. The city’s ancient neighbourhoods
rather than urban conservation. are home to a dense, organic network of bazaars and mo-
hollahs, linked by narrow twisting pathways. This pattern
All countries in the region have dedicated heritage of urban life, which was developed without formal planning,
legislation, which covers inventorying, building permits, is still vibrant today, despite acute development challenges
boundaries and maintenance conditions. These laws are and high population density, reflecting the power of socio-
applicable to all listed heritage assets but, in most cases,
cultural capital. Residential and commercial architecture
from the nineteenth and twentieth centuries have very
are not applicable to the protection of privately owned diverse design or decorative features, which often combine
heritage buildings. Many urban and regional planning acts western and oriental materials and design vocabulary. The
also include heritage components, including special areas. flat urban skyline is punctuated with the domes and shikhar
At the national level, all countries maintain an inventory of Hindu temples and the minarets of mosques, acting as
of national and cultural properties. In some cases, visual landmarks within this dense urban fabric. However,
inventorying is also ensured at the state level (as in India) the city’s cultural significance has been poorly studied until
or even at the local level (as in Sri Lanka or Nepal). recently, when cultural mapping exercises and surveys were
Registration and listings are usually performed by implemented.
separate entities. All the countries in the region are
signatories to the 1972 Convention Concerning the The implementation of the Historic Urban Landscape (HUL)
Protection of the World Cultural and Natural Heritage
approach is being trialled through a pilot project, launched
in 2013 within a partnership between the Rawalpindi
and the 2003 Convention for the Safeguarding of the District Coordination Office (DCO), the National College of
Intangible Cultural Heritage, with the exception of the Arts (NCA) and WHITR-AP, with funding from the Nether-
Maldives, which has not ratified the 2003 Intangible lands Funds-in-Trust. Studies were conducted by NCA to
Heritage Convention to date. Only India, Bangladesh and document the city’s natural, cultural and community re-
Afghanistan are signatories to the 2005 Convention on sources, foster the understanding of their cultural signifi-
the Protection and Promotion of the diversity of Cultural cance and assess their vulnerabilities. Further consultations
Expressions. with planning entities at ministerial and governmental levels
resulted in the incorporation of the HUL approach in the
Very few incentives have been developed to encourage national planning agenda through the Vision 2025 strategic
investment from private owners or to prevent document. This survey and consultation process resulted in
demolitions. A good example, however, is found in
the signature in 2014 of a tripartite Strategic Cooperation
Agreement between the three partner entities for the
Mumbai (India), where a ‘Transfer of development Rights’ revitalization of the historic core of Rawalpindi. Additional
system was successfully piloted. In order to discourage research activities have been implemented and a strategy
private owners from replacing their houses with taller for urban development planning and heritage conservation
buildings, they are allowed to sell the extra Floor Space is being developed, including short-, medium- and long term
Index to public bodies at the market rate. Other systems policies and actions.
have been tried at the local project-based level, notably Source: http://www.whitr-ap.org/index.php?classid=1459
86
STUdY AREA
Pottery Square, Bhaktapur (Nepal)

© Michael Foley/Flickr.com*
development Bank (AdB). Resettlement plans are Bilateral cooperation within the region is also evident. For
generally not required and compensation is only provided instance, India is involved in heritage-based projects in
on a case-by-case basis. Afghanistan and Cambodia. All countries in the region,
with the exception of the Islamic Republic of Iran,
Several cities in the region have established dedicated collaborate through the South Asian Association for
institutions to address urban conservation and Regional Cooperation (SAARC), particularly on poverty
regeneration, either through dedicated development alleviation, rural development and infrastructure
and management authorities – such as the Lumbini improvement. Yet urban heritage and culture remain
development Trust in Nepal – or through specialized marginal in these regional development efforts.
units within local entities, as seen in Mumbai and
Ahmedabad (India). Although overall awareness on
heritage protection remains widely insufficient at the BUILDING A COMPREHENSIVE CULTURE-
local level, some local urban bodies now have specialized BASED APPROACH TO DEVELOPMENT
teams focusing on the issue. However, very few urban
heritage areas have operational management plans, Although significant progress has been made, urban
development control systems or land-use definitions. The heritage remains marginal in general urban discussions in
traditional planning instruments implemented by urban the region. Urban conservation and regeneration efforts
authorities, such as city plans or zoning regulations, have are mostly conducted on a project-by-project basis and
sometimes shown their limits due to the importance of largely target World Heritage urban properties and
the informal economy and the lack of funding from urban significant historic cities in particular. Other culturally
authorities, a situation which calls for more flexible significant neighbourhoods in larger metropolitan areas
instruments and place-based approaches. are often neglected, some of which are falling rapidly into
decay or are being swallowed up by urbanization.
Financial mechanisms for urban regeneration and Addressing the tourism market is often the starting point
conservation are limited in the region. Cultural heritage of conservation and regeneration endeavours, resulting
does not have an independent cost account within local in insufficient reflection on its potential impact on urban
government budgets and is usually funded by urban or services and infrastructure on the wider urban scale and
tourism departments budgets. With the exception of Sri excessive focus on visitors’ needs, to the detriment of
Lanka, no dedicated allocation of resources is foreseen local populations.
for World Heritage properties. However, innovative
public-private partnerships have been initiated, notably A culture-centred vision can reinvigorate urban
in Sri Lanka and India, where a National Culture Fund was development strategies and help address the major issues
created to collect both public and private resources. of urbanization and ‘metropolization’ across the region.
Large-scale urban renewal projects, as well as historic This broader approach would be based on the recognition
precinct-level or monument-level projects, are generally of the relationship between built heritage and its social,
state-funded, with occasional contributions from donor economic, geographical, historical and ecological context.
agencies. In contrast, projects for restoration and It would promote a wider understanding of heritage, one
adaptive reuse targeting income generating activities are which would not only encompass built heritage but also
usually privately developed and financed through private local knowledge and practices, in addition to the creative
equity holders. The safeguarding of intangible heritage is sector. This renewed vision would also contribute to a
mostly funded by ministries of culture, NGOs and stronger understanding of the relationship between the
specialized agencies. urban setting and the natural environment, as well as
intangible heritage and the creative industries.
International cooperation partners are actively involved
in urban conservation and regeneration in the region. The Culture-based urban strategies should prioritize pro-
World Bank, the Asian development Bank (AdB), GTZ, poor frameworks. In many historic urban areas across the
the Aga Khan development Network and the World region, local communities are more vulnerable than those
Monuments Fund are key players in urban development in other urban areas, and largely depend on the informal
projects, including city development strategies, economy. In many cases, the increase in land prices, linked
urban infrastructure development, preservation and with urbanization pressures, has also led to gentrification
conservation, and institutional and financial support. Most and the eviction of low-income populations. In Mumbai,
countries have bilateral or multilateral relationships with for example, textile workers were gradually evicted from
other countries for cultural heritage preservation projects. their traditional accommodation, the chawls, due to the
87
decline of textile mills and speculative pressures in the landowners are included. Some projects related to natural
surrounding areas. Therefore, addressing the needs of heritage, notably in Sri Lanka, have involved communities
low-income populations should be considered a in a more comprehensive manner and could inspire
precondition for any sustainable urban conservation and similar approaches in the urban conservation field.
regeneration strategy which aims to preserve the social
mix embedded in historic urban landscapes. CASE STUDY 32 PAKISTAN
CHINA
NEPAL
Existing pro-poor initiatives, which are often spearheaded

BHUTA
Jaipur and Jodhpur (India)
by civil society actors or social activists, could be
Prosperity through training in BANGLA
INDIA
expanded upon. These initiatives cover a wide variety of
cultural management
urban services, including housing, health and education,
and often target women as their key beneficiaries. The Jaipur Virasat (Heritage) Founda-
Pro-poor housing mechanisms, innovative public-private tion (JVF), established by the founders
partnerships employing finance and microfinance of the Indian fashion brand Anokhi, SRI LANKA
strategies, as well as other tailor-made financial products, has been instrumental in supporting
can help those with limited or no access to traditional
employment through the arts. It provides training in the
sources of financing, and facilitate social inclusion.
management of rural folk musicians, digital music recording,
and support for the annual Jodhpur Rajasthan International
Specific legislation, such as those which allow for the Folk Festival (Jodhpur-RIFF). The JVF also initiated the Jaipur
transfer of development rights, can also improve the Literary Festival to promote literature by Indian authors
housing conditions of the poor while preserving the built writing in English and the various languages of India. These
environment. initiatives, supported by the UNESCO Delhi Office, have
become internationally acclaimed cultural events.
CASE STUDY 31 Source: Minja Yang, Humanizing cities through culture
Pro-poor frameworks:
examples from India and Bangladesh Culture-based urban strategies could be a driver of
Culture-based community development initiatives have fo- broader, more equitable and more effective community
cused on craft and other intangible heritage. In western participation. Experience has shown that the participation
India, social activist Sushma Iyengar established Kutch of local populations in key decisions about their
Mahila Vikas Sangathan and Kutch Nav Nirman, two orga- community strengthens their sense of belonging and,
nizations aimed at improving the living standards of women in turn, strengthens social cohesion. Community
living in the Kutch district. The programme has helped to engagement has often been instrumental in the success
increase awareness of credit and savings, foster access to of urban conservation efforts. The development of
health services, education and disaster risk management, interpretation centres or heritage walks in various
and introduce an employment programme based on historic areas, although not widely implemented, has
proven to be an efficient means of raising awareness
handicrafts and natural resource management.
among local populations. When local cultural practices,
In Ahmedabad (India), Ela Bhatt founded the Self Employed
Women’s Association (SEWA) in 1972 to help local women such as traditional building techniques or community
manage their finances. The success of this initiative allowed maintenance of heritage, are highlighted, urban
the organization to expand its mandate to healthcare, regeneration initiatives are more sustainable and have a
childcare, legal services, capacity-building, housing and greater local impact (see also Case Study 76).
infrastructure.
Community participation can also be stimulated by social
In Bangladesh, the development organization BRAC is another organizations or NGOs. In Nepal, the Guthi has directly
example of an association which works to alleviate poverty contributed to the conservation of Kathmandu’s urban
through microfinance, advocacy programmes, education, heritage by providing inhabitants with financial support
healthcare, legal services, community empowerment and for building repair. In India, dastkar liaises with
governmental, non-governmental and foreign agencies
social enterprises.
Source: Srishti Institute of Art, Design and Technology, report for Study to bring craftspeople, producers, environmental
organizations, social activists and cultural professionals
Area 5
together through capacity-building workshops and

training sessions, which focus on the design and
Community participation in urban conservation and development of cultural products. In Bangladesh,
regeneration remains limited in the region. Although Banglanatak.com promotes pro-poor growth and the
stakeholder consultations are required in some countries, rights of women, children and indigenous groups through
such as in India, they often fail to include marginalized the development of community-led creative industries
groups such as women, and are instead confined to local based on traditional practices.
government officials. In some countries, members of civil
society, research institutions and large private
88
STUdY AREA
Entrance to the Temple of the

Sacred Tooth Relic, Kandy (Sri Lanka)
© Dananjaya Chathuranga
Photography/Flickr.com*
Building more inclusive and sustainable patterns of cultural stakeholders in urban conservation and regeneration,
tourism is also essential. Many countries in the region do together with improved living conditions for the urban
not have integrated and comprehensive tourism policies. poor, are necessary steps to achieving sustainable
Unplanned or mismanaged tourism often accentuates tourism development.
pressures on historic areas, altering their character and
identity and accelerating social changes. The inadequate
accessibility of cultural sites, together with relatively low
tourism fares, notably in India, often deprives local
Cultural matters are integral parts of the lives we
communities of their potential economic benefits. In some lead. If development can be seen as enhancement of
countries, more comprehensive strategies have been our living standards, then efforts geared to
spearheaded. Nepal has often been considered a pioneer development can hardly ignore the world of culture.
of community-based tourism since the establishment of Amartya Sen, economist and philosopher
the Annapurna Tourism development Project and the
Bhaktapur Conservation Project in the 1980s, which
promoted the conservation of heritage and natural
landscapes through community participation and
sustainable funding. Sri Lanka has made substantive
efforts towards environmental sustainability through the
Tourism Earth Lung Initiative, with the goal of becoming
a carbon-neutral destination by 2018. In Sri Lanka,
experience-based tourism products were launched in
three historic cities - Kandy, Anuradhapura and
Polonnaruwa. Bhutan has adopted a ‘high value - low
volume’ policy to control the type and volume of tourists,
and to foster heritage conservation and sustainable use
of natural and landscape resources.
The potential of cultural tourism for urban economies

and local jobs should be further explored. Training
should be more systematically promoted, particularly in
the cultural and creative industries, with a specific focus
on women and youth. Vocational training programmes
have already been developed in some cities for artists
and cultural practitioners, with the objective of enhanc-
ing their traditional skills and facilitating their access to
markets. Further efforts should be made to develop
product and visitor segmentation, as well as more
focused marketing strategies. A wider engagement of all
89
Coordinator of the regional study: THE WORLD HERITAGE

INSTITUTE OF TRAINING AND RESEARCH FOR THE ASIA AND
THE PACIFIC REGION (WHITR-AP)
The World Heritage Institute of Training and Research for the Asia and the
Pacific Region (WHITR-AP) is a Category 2 Centre under the auspices of
UNESCO. Mandated by the State Parties of the World Heritage Convention
and other State Parties of UNESCO, the institute aims to strengthen the
implementation of the 1972 Convention Concerning the Protection of the
World Cultural and Natural Heritage in the Asia-Pacific region, by building
the capacity of professionals and organizations involved with World
Heritage property inscription, protection, conservation and management,
through training, research, the dissemination of information and network-
building. WHITR-AP has three branches: The Shanghai Centre at Tongji
University focuses on the conservation of cultural heritage, such as the
sustainable development of ancient towns and villages, architectural sites,
complexes, and cultural landscapes. The Beijing Centre at Peking University
is in charge of natural heritage conservation, archaeological excavation,
and the management of sites. The Suzhou Centre, hosted by Suzhou
Municipal Government, provides technical training and research on site
management methods and restoration techniques.
90
STUdy area
Australia, Brunei Darussalam, Cambodia, China, Cook Islands, Democratic
People’s Republic of Korea, Fiji, Indonesia, Japan, Kiribati, Lao People’s
Democratic Republic, Malaysia, Marshall Islands, Micronesia (Federated
States of), Mongolia, Myanmar, Nauru, New Zealand, Niue, Palau,
Papua New Guinea, Philippines, Republic of Korea, Samoa, Singapore,
Solomon Islands, Thailand, Timor-Leste, Tonga, Tuvalu, Vanuatu, Viet Nam.
HIGHLIGHTS
The region is home to a rich, ancient urban tradition,
reflected notably in trading urban centres, port cities or
sacred sites, later influenced by the European colonial presence.
Mass urbanization and real estate pressures have profoundly
altered the socio-economic functions and spatial organization
of cities, with a particular impact on historic areas.
Although regeneration strategies have been initiated in
several historic districts throughout the region, urban
conservation is still addressed in isolation from wider urban
development issues.
Most cities have experienced gentrification in both newly
built and historic areas, which has led to the unprecedented
forced displacement of low income populations.
Urban conservation and regeneration have contributed to
strengthening cultural continuity and social cohesion, as well
as fostering community participation, challenging top-down
models.
Public spaces have been a particular focus of urban

conservation and regeneration efforts, particularly in light
of increasing land speculation and widespread privatization
of urban areas.
In a context where environmental risk management practices
remain insufficient, a culture-based approach can help build
urban resilience.
91
Kyoto (Japan)
© Pushish Images/Shutterstock.com*
FROM EARLY URBAN TRADITIONS TO ‘desakota’ patterns are now particularly common in the
EXPONENTIAL URBAN GROWTH region; this decentralized urbanization model is composed
of mixed settlements of small towns and villages, where
East and South-East Asia have a rich urban history which both agricultural and non-agricultural activities coexist.
extends back to ancient times. In South-East Asia in
particular, trading cities flourished along main commercial In contrast, the Pacific sub-region has followed a diverse
and trading routes, which linked these cities to the larger range of urbanization trajectories. There, human settle-
region. Sacred sites were another early category of urban ments are the result of encounters between indigenous
settlement, which often rose to become important national cultures and European settlers, as most urban settlements
symbols. Between the sixteenth and nineteenth centuries, were developed on top of existing indigenous sites. Aus-
colonial expansion stimulated the rise of a network of port tralia and New Zealand were particularly influenced by
cities, along with road and railway infrastructure and other American and European urban planning movements,
settlements built for administrative or defence purposes. resulting in the acceleration of urbanization during the
As symbols of colonial wealth and power, large cities were nineteenth-century period of colonial expansion. In the
organized according to principles of spatial segregation, Pacific Small Island developing States (SIdS), overall
dividing the colonial elites from the local population, a urbanization levels remained rather limited until recently,
segregated urban pattern which persists to this day. with heterogeneous figures ranging from 19% in Samoa to
53% in Fiji or 86% in Palau. In some countries, high density
In the second half of the twentieth century, urbanization patterns have spurred unemployment and placed pres-
levels expanded rapidly across East and South-East Asia. sure on existing infrastructure (United Nations, 2014).
The end of colonial rule in South-East Asia, together with
the emergence of nationalism, sparked rural to urban CASE STUDY 33
migration, which led to overpopulation in most urban Manila (Philippines)
centres, along with the exponential expansion of slum The Intramuros Restoration
settlements and urban poverty. Beginning in the 1960s, and Development Project: a PHILIPPINES
urban trajectories diverged according to specific political long term urban endeavour
or economic contexts. International alliances between
countries in the region and their socialist or capitalist The Intramuros area of Manila is an
allies constituted a major dividing line. Foreign investment 86-hectare triangular area composed
strategies, notably the creation of free trade zones, also of walls, streets, open spaces and historic buildings. This
strongly shaped urbanization patterns. In addition, many historic precinct was established during the Spanish pres-
city centres were transformed thanks to a growing ence in the colonial design of ‘Nueva España’. The area en-
tourism market. In East Asia, industrialization processes
joyed prosperity during colonial times but started to decline
triggered mass urbanization, particularly between 1950
in the nineteenth century. By the late 1930s, most urban ac-
tivities had shifted to other areas of the city. The Second
and 1980 in the case of Japan and the Republic of Korea, World War II severely damaged Manila, particularly Intra-
and after 1980 in China. muros. By the 1950s, the original population had moved out
and Intramuros became a slum area, with informal housing,
From 1970 to 1990, the gap between post-industrial warehouses and trucking facilities.
global cities and their labour-intensive counterparts
widened. Emerging global cities were home to a growing The Intramuros Restoration and Development Project was
middle class and were characterized by tourism and initiated in 1979 with a view to revitalizing the area, im-
business-specific areas, as well as gated communities and proving living conditions and restoring cultural heritage. The
high-rise buildings. By contrast, a second class of cities Intramuros Administration was created under the aegis of
continued to be marked by labour-intensive industries,
the Ministry of Human Settlements and, later, of the Depart-
sprawling urban poverty and informal settlements. Across
ment of Tourism, to run the project. This 20 year-long urban
regeneration programme was designed as part of the overall
the region, urban planning was primarily based on urban development plan and focused notably on restoration,
centralized approaches, with the objective of addressing land use and planning. Reviving cultural, educational and
regional disparities and promoting regional integration. religious activities were also among the main targets.
In China in particular, strict regulation managed to
contain rural to urban migration and favoured the Thirty-seven years after its launch, the programme is still
development of small cities, although their traditional being implemented, reflecting the necessity of a long-term
features have often been erased. perspective. It was successful in eliminating slum areas and
restoring the buildings of prestigious schools, universities,
In the last decades, globalization spurred the emergence churches and administrations. Other activities must still be
of world and mega cities, along with the wide diffusion of
pursued in the coming years to fully restore Intramuros’s
Western popular culture among urban populations. Large
heritage resources and regain its core urban function within
the capital city, as well as its potential to leverage urban and
events such as the Olympic Games have further economic development at the metropolitan level.
accelerated this transition. New urban forms emerged,
including mega-urban regions or urban corridors.
Source: WHITR-AP, report for Study Area 6
92
STUdY AREA
Shanghai (China), 1936

© Everett Historical/Shutterstock.com*
Urbanization rates in the region are among the fastest- earthen and colonial architecture. Historic religious
growing in the world. In a short span of time, urbanization structures are among the most prominent heritage
has profoundly shaped the evolution of societies and the features, testifying to the broad range of coexisting beliefs
larger role of East and South-East Asian cities in the global found in the region, including, among others, Buddhism,
market. The urban population in the survey area increased Islam, Christianity and Hinduism.
from 614 million in 1990 to 1.265 billion in 2014, with
China being the prime contributor to this urban growth. This outstanding urban heritage has been affected by the
Today, the region hosts 10 megacities with over 10 million pressure of rapid urbanization, notably from property
inhabitants. despite this unprecedented growth, the developers, financial markets and mass tourism. Ill-planned
region is still likely to face several decades of further urban development and unsustainable approaches to
urbanization (United Nations, 2014). tourism have threatened both the visual integrity of urban
landscapes and urban cultural values. The region’s cities
Global forces and speculative processes have exacerbated are also particularly vulnerable to climate change and
social inequalities in East and South-East Asian cities. natural disasters, as a result of their coastal locations and
Brutal property speculation, together with rapid economic rapid urban development patterns, as well as due to their
and population growth, has led to the eviction of poor demography. In that context, disaster risk preparedness
populations from central areas and contributed to systems remain insufficient, although they have improved
gentrification. A growing social gap has led to increased in recent decades.
levels of urban conflict and criminality, weakening social
cohesion. Yet reducing inequalities is not always a key Urban conservation is still addressed separately from
aspect of urban development policies in the region, which urban development. The establishment of an integrated
have tended to focus on infrastructure construction and approach where urban conservation lies within urban
placed less emphasis on housing or the provision of equal development procedures remains a challenge. The
urban services. Urban poverty and unemployment legislative framework often fails to protect urban heritage
therefore remain major issues. Although overall living in a context of rapid change. Construction control
conditions have improved across the region’s cities, mechanisms in culturally sensitive areas are not fully
notably concerning access to higher education and operational and illegal construction is common. A paradigm
modern facilities, urban infrastructure and services are shift from a primarily elitist vision of urban conservation
overwhelmed by soaring population growth. Access to to community-based practices is urgently needed.
water, housing and transport remain largely insufficient,
further contributing to the expansion of slums and the The cultural and creative industries have also been
informal sector. actively promoted in the region. Accounting for a growing
share of urban jobs, especially in large cities, the cultural
industries constituted, in 2015, around 9.4% of Seoul’s
URBAN HERITAGE AND CULTURAL employment rate (Seoul Metropolitan Government)1 and
INDUSTRIES IN THE FACE OF ACUTE 13.4% of Beijing’s GdP (Beijing Municipal Bureau of
URBANIZATION PRESSURES Statistics).2 The transition from industry to service-
oriented economies and the subsequent prosperity
East and South-East Asia are home to numerous historic derived from sustainable tourism and the cultural
cities, reflecting the complex, interwoven layers of various industries provided cities with a source of resilience
civilizations. Urban culture and heritage result from against the global financial crisis and offered an
multiple influences, notably Indian and Islamic, as well as opportunity to highlight their local identities.
from exchanges with the West during the period of colonial
rule in South-East Asia. Walled cities and trading ports are
among the various typologies, some of which are very well-
preserved. A great diversity of architectural styles and 1
See: http://www.worldcitiescultureforum.com/cities/seoul
techniques are found across the region, including wooden, 2
See: http://china-trade-research.hktdc.com/business-news/article/Fast-
Facts/Beijing-Market-Profile/ff/en/1/1X000000/1X06BPU3.htm
93
PERSPECTIVE 9
ANCHORING THE REDEVELOPMENT OF THE TOKYO
BAY AREA IN CULTURE
Hidenobu Jinnai Hosei University (Japan)
Waterfront spaces are akin to a mirror- other hand, there is still a strong inclination
like presence, acutely reflecting changes towards conventional development that
in values over time. The Tokyo Bay, in focuses on high-rise apartments built by
particular, has undergone major shifts developers. This is apparent in the Tokyo
over generations through the pre-modern, Waterfront Development. However, an
modern and post-modern eras. Today, urbanscape of rows of apartment towers
as the city prepares for the 2020 Olympics, runs contrary to the idea behind sustain-
the Tokyo Bay is once again ready to unable urban development that will come
dergo changes. During the high economic to be sought in the future. Development
growth period, the waterfront space had with diversity, the kind that is able to
no time to look back to the past. It was transform itself as values change over
forced to go forward. Japan rose to be- time, will come to be sought. We need
come a global economic superpower and to utilize existing warehouses, facilities
later saw its growth wane. Yet the Tokyo and the like to ensure functional com-
Bay area has a history of land reclamation plexity, diversification of residents and
from the start of the Edo period, even workers, and architectural diversity.
before the city had transformed into a more focused on archeology and monumental heritage.
major modern day space. People were In the Tokyo Bay, many reclaimed land The Pacific SIdS only embarked upon the establishment
engaged in various activities, which have areas shaped like islands, including Tsuk- of such legal systems in the 2000s and have yet to directly
since either been passed on, or form the ishima, Harumi, Toyosu and Odaiba, are address the issue of urban heritage preservation.
layers of nostalgic memories associated unique in character with historical vestiges
with the setting. If we could inherit these from the Edo period to the early modern Urban heritage conservation is not clearly defined in most
countries. Cultural heritage is usually protected through
genes of the past, we would be able to era. Diversity can overlap with the concept
realize much more creative urban planning. of the archipelago in order to build a
Instead of building a modern water space new kind of urban space in the Tokyo a set of registration, selection and designation regulations
from scratch, we would revive past ex- Bay area. The islands can be connected and laws, which are eventually extended to cover urban
periences and memories for the future. to each other ideally by boat, with people ensembles and urban heritage. In some countries, efforts
travelling between islands as they use are now being made to include the concept of urban
There is a clear trend in cities all around their five senses to enjoy landscape and heritage in national legislation, particularly through such
the world in reassessing their allure as nature. Residential areas and businesses notions as heritage sites or cultural landscapes. Some
countries, including Japan, the Republic of Korea, China
waterside cities. The waterfront is not could be spaces that express the soul of
merely creating a lively touristic and Japanese culture, where the natural is
commercial space, but top global com- blended with the built environment. Un- and Singapore, already have comprehensive mechanisms
panies are seeking attractive environments doubtedly, it would transmit the distinctive for the protection of historic cities. Specific conservation
and are opening offices. Creative busi- charm of Tokyo to the rest of the world. or management measures are often planned for
nesses are congregating in these spaces Now is the time to revisit past experiences designated historic areas and then implemented through
to renovate waterside warehouses and to strengthen layers of meaningful history existing land planning systems.
factories, giving birth to a new kind of before the expansion of existing devel-
Urban conservation issues are increasingly addressed by
economic foundation. In Tokyo, on the opment that prioritizes the economy.
national programmes for cultural heritage preservation.

These programmes exist in most countries and directly
GOVERNANCE FRAMEWORKS: AN impact urban heritage. Among them are the national
INCREASING BUT INSUFFICIENT FOCUS heritage conservation programme in Malaysia and the
ON URBAN CONSERVATION national targeted programme on culture in Viet Nam. In
some countries, such as Brunei darussalam, national
Most countries have established independent legal programmes fit into overall development strategies.
systems for cultural heritage, although their effective In some cases, notably in the Philippines, they are
implementation remains an issue. Countries where implemented in close cooperation with local authorities.
conservation has been a longstanding concern – such as In Japan, the Republic of Korea and China, relevant
Australia, New Zealand, Japan, the Republic of Korea and programmes and policies have been integrated into urban
China – have comprehensive legal systems, some of which conservation legislative systems concerning classification,
were established in the first half of the twentieth century. zoning, conservation plans and inventories, while
Although these systems were influenced by national nationwide programmes are conducted for inventories or
conservation ideologies, they are primarily grounded in the conservation of historic cities.
Western concepts. They address diverse categories of
heritage and include inventorying, conservation and Specific technical instruments and initiatives related to
management measures. In other countries, such as urban heritage have been developed. For example,
Mongolia and Viet Nam, the elaboration of this legislative Australia, New Zealand and Indonesia have established
framework was only initiated after 1980 and remains technical policies and guidelines for cultural and natural
94
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Gardens by the Bay, Singapore (Singapore)

© Jean Baptiste Roux/Flickr.com*
Mongolia, the Republic of Korea, China and Viet Nam have

more centralized approaches. In Singapore, for example,
urban conservation and urban planning are handled by a
single central authority. However, in Japan, central and
local governance are equally important.
Public private partnerships and other funding instruments

are key levers for urban conservation activities. More and
heritage in urban contexts, which have resulted in the more, local bodies are cooperating with civil society
creation of toolkits, thematic studies or strategic policy organizations and private stakeholders. In New Zealand,
papers on historic cities. In Australia, the indigenous for example, cooperation with the non-profit and corporate
heritage management guide ‘Ask First’ fosters respect for sectors is instrumental, as exemplified by the renowned
heritage places and values among land developers and ‘Main Street Model’, where inner city areas are actively
managers. The Indonesian Heritage Cities Network also managed by business owners who invest in restoration.
develops pilot projects with support from public-private Some countries have set up dedicated financial
partnerships. instruments, including grants, subsidies, tax incentives
and heritage loans. In Singapore, tax exemption schemes
Urban risks are increasingly addressed in legal and policy encourage private donations, while in Australia, the
frameworks across the region, although the implementa- Heritage Incentives Programme managed by the Heritage
tion of risk management policies is often hampered by a Office provides AUd 2.4 million every year for heritage-
lack of enforcement capacity or a regulating agency. related projects.
While some countries have developed an extensive range
of legislative instruments – particularly in the field of dis- International cooperation has been instrumental in the
aster risk management, disaster risk reduction, risk field of urban conservation. International organizations
mapping and early warning strategies – others still lack such as the Association of Southeast Asian Networks
overarching legislation. In Vanuatu, risk assessments are (ASEAN), the World Bank, or the Asian development
required for development projects. The Republic of Korea Bank have invested widely in the region. The World Bank
has introduced regulations on disaster impact mitigation. in particular has laid an increasing emphasis on cultural
In China, disaster risk management is not addressed heritage and sustainable tourism over the last two
through one single, dedicated piece of legislation, but decades. Private foreign foundations and institutions are
transversally integrated across relevant sectoral laws. By also actively involved, notably the Getty Institute, the
contrast, Japan has established specific, dedicated insti- World Monuments Fund and the American Express
tutions and mechanisms to monitor risk management Foundation. Urban conservation activities also benefit
policies, particularly the disaster management committee from bilateral cooperation, both with Western countries
and the Minister of State for disaster Management. (notably France and the United States of America) and
other countries in the region (particularly Japan, the
National and local government bodies are key players in Republic of Korea and Australia). Bilateral projects are
urban conservation, although institutional systems and often combined with multilateral funding, particularly
collaboration frameworks vary across the region. Urban from the United Nations development Programme
heritage is often managed through intersectoral (UNdP) or the United Nations Capital development
mechanisms, such as the independent urban conservation Fund (UNCdF).
systems implemented in China or Japan. decentralized
heritage management is more commonplace in federalist UNESCO Culture Conventions are being actively
countries such as Australia, Indonesia and Malaysia, where implemented across the region. As of July 2016, eight
civil society is also often stronger. In some countries, urban countries had ratified the 2005 Convention on the
heritage is handled by local government bodies, Protection and Promotion of the diversity of Cultural
particularly through ‘Heritage Houses’, which are often Expressions,3 reflecting the growth of the creative and
charged with controlling building permits, as seen in
Myanmar and Laos. Other countries including Singapore,
3
See: http://en.unesco.org/creativity/convention
95
cultural industries in the region. As a result, issues such as pressures, a number of restoration and revitalization
facilitating access to culture, improving the efficiency of activities have been successfully conducted, often with a
the legal framework and enhancing creative capital view towards the development of tourism. Beyond
through investment have received greater attention. physical restoration, the objective was to improve the
Australia and New Zealand have adopted the most clearly quality of life and strengthen local and national identity.
defined provisions for the protection of cultural diversity Restoration activities have often been combined with the
in the region, with a particular focus on the rights of recovery of public buildings for cultural or educational
indigenous communities. The 2003 Convention for the activities, as in Manila’s Intramuros Restoration and
Safeguarding of the Intangible Cultural Heritage has development Project and in the restoration project
been ratified by 24 countries in the study area and should conducted by the city of Vigan (Philippines), which led to
be further promoted, particularly in the Pacific SIdS.4 the creation of cultural centres for the local population
Its concepts and mechanisms are gradually being and was recognized as a best practice in management in
appropriated. Priority is given to documentation and listing 2012 (see Case Study 91).
rather than sustainability and development; half of the
total number of listed elements are found in East and Restoration activities have often helped to revitalize
South-East Asia. Legal instruments dedicated to intangible intangible heritage practices by targeting buildings which
heritage still need to be developed across the region. The are representative of local cultures, including religious or
implementation of the Convention has encouraged public buildings, but also residential buildings. For
countries such as Viet Nam to review the vision of heritage example, the restoration of dr Zhang Yunpen’s residence
embedded in national legislation. The 1972 World in Zhenjiang (China), located in a rapidly changing urban
Heritage Convention has been ratified by 43 countries area, serves as a tangible reminder of the significance of
and 34 of the World Heritage properties in the study area the city’s history. The regeneration of the Nielson Tower
are located in urban areas.5 The preparation of Tentative in Metro, Manila (Philippines), also called the Filipinas
Lists is mainly led by national governments, while local
communities are rarely involved. National inventories are CASE STUDY 34 CHINA
conducted in a majority of countries, although few

Hanoi (Viet Nam) M
integrate heritage protection into overall planning

LAO PEOPLE’S VIET NAM
DEMOCRATIC
Reinforcing a tradition of REPUBLIC
programmes and national budgets often provide limited

community, neighbourliness
resources. Only six countries have developed a national THAILAND
and trust in the Ancient
training strategy for heritage conservation.
Quarter CAMBODIA
UNESCO programmes have also been instrumental in In Hanoi’s Ancient Quarter in Viet Nam,
countries of the region. Twenty-nine cities located in eight life spills out from the shophouses that
countries in the study area are members of the UNESCO line its narrow streets. Much of the housing stock in the An-
Creative Cities Network.6 In the Pacific, creative cities cient Quarter is cramped and dilapidated, with many resi-
have tended to focus mostly on cinema and publishing, dences lacking indoor plumbing and with cooking facilities
while the creative focus is more diverse in East Asia confined to an outdoor courtyard. People live in close prox-
(which includes cities of craft and folk art, design and imity and land prices are the highest in the city. A family could
gastronomy). In order to specifically address the needs of easily sell their cramped home in the Ancient Quarter and
Pacific SIdS, the World Heritage SIdS Programme was buy a spacious estate in the suburbs. Although many have
launched in 2005 to foster capacity-building and develop
done so, those who remain insist that despite all appear-
ances, it is the quality of life that keeps them here – their
regional and international networks. The programme attachment to their community and its intangible cultural
builds on the results of the Pacific Heritage Hub, which heritage, rooted in the quarter’s ancient organization as a
aimed to foster World Heritage nominations and improve network of specialized markets.
management practices in SIdS. Since its launch, the
Levuka Historical Port Town in Fiji has been inscribed. Echoing the older system of craft villages, guilds and mar-
kets, members of one lineage often live together in ex-
tended-family households. In each street there are multiple
URBAN CONSERVATION AND close kinship relations. Through these social ties, the com-
REGENERATION: BUILDING CULTURAL munity can monitor the behaviour of its members and mem-
CONTINUITY bers can regulate their own behaviour according to
community values. The identities of today’s residents, both
those who can trace their ancestry to the ancient guilds and
Conservation and regeneration strategies have been more recent arrivals, embody this intangible cultural her-
initiated in several historic districts across the region. itage of community, neighbourliness and trust, derived from
Although many historic neighbourhoods have been the quarter’s heritage as a centre of commerce.
demolished over the past decades due to urbanization Prepared by Frank Proschan
4
See: http://www.unesco.org/culture/ich/en/states-parties-00024
5
See: http://whc.unesco.org/en/statesparties/
6
See: http://en.unesco.org/creative-cities/creative-cities-map
96
STUdY AREA
Hanoi (Viet Nam).

© Darren Wood/Flickr.com*
Heritage Library, helped to revive community interest in Hotel project in Hong Kong (China), an extensive cultural
local heritage. Similarly, the restoration of Wat Pongsanuk mapping process was implemented to enhance the social
in Lampang City (Thailand) offered an opportunity to and economic impact of the project. Community-led
revive the traditional practice of community maintenance, funding can also be mobilized, as in the example of the
which instilled a new sense of ownership among local Kow Plains Homestead project in Victoria (Australia),
inhabitants. which was restored into a museum and educational
centre with funding from the local community, as well as
Several projects have been instrumental in building the NGO-funded Zhaoxiang Huang Ancestral Hall project
cultural continuity and fostering social cohesion, in Foshan (China). Communities can also be the initiators
particularly among migrant communities. The Tak Seng of projects, as in the case of Hong Kong’s St Joseph’s
On Pawnshop Museum in Macau (China) offers an Chapel which has become a model for grassroots,
interesting example. Historically hosting pawnshop community-led conservation projects.
activities (early banking facilities), the building was
restored into an on-site museum, thereby promoting the Public space has been a particular focus of urban conser-
recognition of traditional commerce and finance and its vation and regeneration efforts. In a context where
role in the daily life of communities, which has contributed urbanization pressures and land speculation is progres-
to cultural and community continuity. The renovated sively encroaching upon public space, enhancing these
Sailmaker’s Shed in Broome (Australia) has also kept the spaces has become a priority. Therefore, improving the
history of the pearling industry alive, reviving a sense of quality of streets, pavements and parks has often been a
pride within the local community. The restoration of the strategic component of restoration projects. The restora-
Cheng Hoon Teng Main Temple in Malacca (Malaysia), tion of public buildings has also often initiated the
built in the seventeenth century for Chinese immigrants, improvement of urban services or the wider revitalization
contributed to the continuation of this community’s of urban areas, as in the case of the University Belt
cultural practices. project in Manila (Philippines) and the restoration of the
devavesm Palace in Bangkok (Thailand). The refurbish-
Larger-scale culture-led strategies for urban regeneration ment and reuse of the Cheong Fatt Tze Mansion in
are also gaining momentum. Although urban conservation Penang (Malaysia) and the restoration of the Medina
and regeneration is generally focused on protected areas, Grand Adelaide Treasury (Australia) are other outstand-
several wider, more ambitious initiatives have been ing examples. On Cangqiao Historic Street in Shaoxing
implemented on the urban scale, in which culture was seen (China), efforts have been made to improve urban services
as a strategic lever for urban development. In Wellington such as electricity and sewage, as well as the water quality
(New Zealand), the elaboration of the Built Heritage Policy of the nearby river, which, in turn, have helped to pre-
has led to the identification of key heritage areas and the serve both the streetscape and local traditions. The
implementation of conservation and management regeneration of public spaces has also helped, in some
regulations. Significant heritage buildings were enlisted, cases, to highlight and reinforce local identities. The
heritage protection areas were extended and disaster risk restoration of Zhongshan Road in Quazhou (China)
resilience was improved. However, such integrated aimed to improve public space while also respecting
approaches remain the exception, as urban development traditional features, including pavements and shopfront
and urban conservation are generally addressed separately. facades (see also Case Study 52).
Local communities are increasingly involved in urban

conservation and regeneration efforts, challenging top- LOOKING TO THE FUTURE: CULTURE AS A
down models. Throughout the region, consultations with KEY ASSET FOR RAPIDLY CHANGING
local residents or initiatives which allow for their direct CITIES
participation in project implementation have proven
effective in promoting sustainability. The preservation of The cities of the study area have undergone a radical
the Hung Shing Temple in Hong Kong (China), for evolution over the last two decades. The combined
example, received the full support of the local villagers, pressures of mass urbanization, demographic transition
who carried out daily inspections of the temple, attended and globalization have profoundly altered the socio-
regular site meetings and were invited to provide economic functions of cities and their spatial organization.
comments throughout the project. For the Tai O Heritage These processes have resulted in growing social gaps and
97
spatial segregation. Urban environments are also preventative measures included dams, planting, dredging
gradually losing their specific identity in favour of more and the restoration of the city walls. The city of Vigan
standardized, international features. In this context, (Philippines) launched an emergency preparedness
culture can be seen as a strategic asset to address the initiative to mitigate earthquake risks through the
challenges of urban development, while also preserving preparation of an emergency response handbook and
urban cultural identities, with culture-based strategies training for the fire department. Climate change risks have
offering a pathway for more sustainable, inclusive and also been addressed in Hué (Viet Nam), through a plan
equitable urban development. that takes into account water resources, agriculture,
forestry, fisheries, costal zones, energy and transport. As
Culture-based approaches have helped build urban part of post-earthquake recovery activities in Lijiang
resilience. due to its high exposure to natural risks, the (China), grants were provided to local populations for
region has been relatively proactive in building risk home repair, while guidelines for earthquake-resilient
management systems. The overall approach to risk reconstruction techniques were elaborated. This approach
management has gradually evolved over the past few could be expanded to more general urban planning
decades. In the Philippines, Viet Nam and Japan, there has practices.
been a shift from reactive emergency management to
proactive disaster risk reduction. In New Zealand, the Cities are increasingly viewing culture as an asset in the
notion of ‘sustainable management of hazards’ is now face of international competition. By creating an attractive
being put forward. In this context, a stronger focus on environment for investors, tourists and skilled workers,
culture, and particularly on traditional knowledge systems, cities can achieve ‘world city’ status. Interestingly, culture
could contribute to sustainable urban development and heritage are now being included in economic
perspectives and help cities face critical environmental competitiveness indicators for urban areas. Newly
challenges (see also Case Study 78) . emerging cultural and creative industries have proven more
resilient to the global financial crisis than other economic
CASE STUDY 35 THAILAND sectors. Urban conservation and regeneration is therefore
B increasingly discussed within local development circles.
George Town (Malaysia) MALAYSIA
Heritage as a rallying
Cultural tourism and the creative economy are gaining
point for community action
INDONESIA
momentum within urban economic strategies. Tourism is
In 2008, George Town and Melaka an important component of urban regeneration strategies.
were jointly inscribed on the UNESCO World Heritage List A wide range of tourism-based urban regeneration
for their rich trading heritage. In George Town, the capital initiatives have been undertaken and sustainable tourism
and largest city of the state of Penang in Malaysia, the local strategies are widely promoted, especially in South-East
community plays a significant role in the conservation and Asia. For example, the Amphawa Canal Community in the
protection of cultural heritage and the promotion of urban outskirts of Bangkok (Thailand) was revitalized as a trading
development. Faced with large-scale development threats centre, which attracted tourism and generated revenue
that risk impacting the heritage values of the site, the local that was in turn reinvested into local regeneration, notably
in the floating market(see also Case Study 103). The
community has been active in driving several conservation
cultural and creative industries are also an important part
processes forward. In 2007, a large-scale community
protest, consisting of numerous demonstrations, campaigns
and government lobbying successfully halted the Penang of the emerging services sector in some Pacific and East
Global City Centre Development (PGCC) project, which Asian countries. In Australia and China, in particular,
aimed to transform 260 acres of green space into tower cultural industries are promoted through strong national
blocks. Similarly, the establishment of the Penang Heritage and local policies and represent a significant part of their
Trust has paved the way for other bottom-up conservation urban economies (see also Case Study 69). The creative
processes, including the George Town Transformation Pro- sector is less developed in South-East Asian countries.
gramme established in 2009, which have resulted in cul-
tural mapping, capacity-building, conservation and the The expansion of museums has also been a prominent
development of shared spaces to address the issues of the feature of urban strategies. The role of museums has
city’s ageing population, poor public amenities and lack of gradually changed from a focus on conservation to
education. In culturally diverse Asian cities, museums have
investment.
Source: WHITR-AP, report for Study Area 6 emerged as platforms for intercultural dialogue,
highlighting local identities and inspiring pride in
communities, especially those which have faced
In the field of urban conservation, World Heritage discrimination. In cities marked by drastic transformation,
properties have provided testing grounds for innovative museums have often offered unique opportunities to
risk mitigation measures. A risk preparedness project was reflect on the past and consider the future. In some cases,
implemented in the Historic City of Ayutthaya (Thailand), museums have also been employed as ‘social moderators’
to mitigate flooding risks in a context where traditional to soothe community conflicts and nurture social inclusion.
prevention systems were deteriorating. Proposed They also represent a new type of public space for social
98
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Amphawa Floating Market, near Bangkok (Thailand).

© Gavin Golden/Flickr.com*
C A S E ST U DY 36 encounters and civic engagement, as well as catalysts for

informal education and skill transmission. In large cities
MONGOLIA
DEMOCRATIC
Hangzhou (China)
such as Beijing or Shanghai (China), Seoul (Republic of
PEOPLE’S REPU
OF KOREA
REPUBLIC
Building sustainable urban
Korea), Tokyo (Japan), Melbourne (Australia) and
OF KOREA
JAPAN
CHINA
conservation strategies
in a major tourism hub Singapore, the development of major national or city
museums has been an important component of city
SH
NMAR VIET NAM
Home to seven million inhabitants, Hangzhou is a key city branding strategies, contributing to the image of these
on the Yangtze River delta and a major economic, cultural cities as culturally thriving creative centres. Large
and scientific pole within the densely populated Zhejiang museums often act as economic hubs, attracting
province. The urbanized area only occupies one-fifth of its investment and generating significant revenues and jobs.
land mass, with the remaining part being covered by hills,
rivers, lakes, ponds and reservoirs. The city hosts an out- Community museums have been particularly important as
standing array of cultural and natural heritage, notably the agents of social change. Examples from across the region
have targeted both the preservation and promotion of
West Lake cultural landscape and a part of the Chinese
intangible and tangible heritage. These small, community-
Grand Canal, both of which are World Heritage properties,
as well as numerous religious and residential protected
buildings. Hangzhou is also renowned for its creative indus- owned structures are often supported by NGOs or
tries and is now part of the UNESCO Creative Cities Network foundations, as in the case of the Traditional Arts and
for its crafts and folk art. Hangzhou is a major tourism des- Ethnology Centre in Luang Prabang (the Lao People's
tination, attracting both national and international visitors. democratic Republic) and the Nias Heritage Museum in
Tourism has consistently increased over the past few Gunungsitoli (Indonesia). In some cases, such as the Viet
decades, reaching 97.25 million people in 2013. Setting up Nam Museum of Ethnology in Hanoi, museums receive
a sustainable tourism management policy is therefore essential, funding from the state. Although museums are often
particularly as tourism is considered a vital part of future perceived as an attraction for foreign visitors, they are
municipal strategies. increasingly becoming knowledge centres for local
communities which raise awareness of the importance of
preserving local cultures, as in the case of the Wat
To protect and enhance its outstanding cultural landscape
and urban heritage, while also preserving the quality of life,
the city has engaged in an ambitious sustainable tourism Pongsanuk community-based museum in Lampang
strategy. The plans aimed to regenerate several attractive province (Thailand). As a result, their domestic audience is
cultural centres – including the riversides of the Grand Canal increasing steadily. Research is also among their key
and the Southern Song Royal Street – with a view to allow missions. These museums often have a direct impact on
visitors to spread out across the city. Improving living con- local community development, through job creation and
ditions for residents was a key objective; density has been training opportunities.
reduced through the relocation of some residents and exist-
ing housing was upgraded, which allowed for the preser-
vation of the residential function of historic areas. The
development of the cultural industries was also encouraged An emerging challenge in city branding today is
through the adaptive reuse of the city’s numerous industrial the risk of homogeneity across cities, as cities follow
buildings, many of which were transformed into cultural the same formula in city branding. To find greater sources
hubs. An effective sewage system was created and factories
were relocated to enhance water and air quality. Numerous
of differentiation, a developing trend is to focus on a
historic sites were restored and opened to the public free of city’s creativity and creative industries as a valuable
charge. The buildings on Song Royal Street were classified asset in developing a unique city brand.
with dedicated protection mechanisms. Support was pro- Lily Kong, Singapore Management University
vided to the 20,000 local tea farmers – who play a key role
in preserving the cultural landscape and the local tea culture
– through direct subsidies, favourable regulations and dis-
tribution. As a result, annual sales of Longjing tea have risen However, culture has not yet become an overarching
considerably, reaching CNY 93 million. component of city branding strategies. Rapid urban
development has tended to create monotonous and
This sustainable strategy will be pursued in the coming years
to further restore natural resources, notably through enhanced standardized cities, where the relationship between the
vegetation coverage and the creation of an improved sewage built environment and local ways of life is neglected.
and water distribution system, while also further developing Overall, the importance of city identity has not been
creativity by combining local history, culture and tourism. widely acknowledged across the region. In some cases,
though, the restoration of specific buildings has had spill-
over effects on the city’s image. In Hoi An (Viet Nam), the
99
P E R S P E C T I V E 10
FOSTERING TALENT AND CREATIVITY FOR SUSTAINABILITY Numerous examples of forced displacement can be found
Cho Byung-don, Mayor, Icheon (Republic of Korea) across the region, notably in the Philippines, China,
Malaysia, Myanmar or Cambodia, where evictions were
Culture is not only the tangible and in- the city government has leveraged the
tangible heritage of a particular area city’s member status in the UNESCO Cre- forced upon local communities under the veil of urban
that is enjoyed by its people. Culture is ative Cities Network (UCCN) to promote development or beautification projects. In Phnom Penh
the most powerful driving force and key and share cultural programmes, which (Cambodia), for example, a redevelopment project in
factor that humankind can use to develop has yielded positive results. I am confident 2000 led to the eviction of local residents and the
economies and societies. For this reason, that these efforts and achievements align destruction of their homes, which were replaced with a
the city of Icheon has made efforts to with UNESCO’s goals to help all people casino. In the Republic of Korea and Japan, similar pro-
cesses were observed despite more comprehensive
foster creativity and talent, including its in the world live in sustainable regions
master craftspeople, who have supple- and feel happy. Icheon city will draw on
mented cultural infrastructure such as its experience to help humankind to policies on property rights. In Seoul (Republic of Korea),
the Icheon Ceramics Village. Activities enjoy sustainable development through a ‘New Town’ redevelopment scheme implemented in the
such as international workshops have active participation in the diverse pro- 2000s drastically reduced the city’s supply of affordable
served to expand a renowned global grammes and projects of the UNESCO housing. In Tokyo (Japan), special urban development dis-
market for crafts and the sharing of network of creative cities. tricts were designated, resulting in the concentration
of condominiums in certain areas; in Osaka, Kobe and
cultural activities and values. In addition,
Kyoto (Japan), the large-scale replacement of historic
houses with modern condominiums has also been
restoration of the Tang Family Chapel – a timber building observed.
with a terracotta roof – served as a pilot project to restore
the overall character of the town. Similarly, in Taizhou
(China) the restoration of a 100-year-old street helped to
CASE STUDY 37
MONGOLIA
revive the city’s urban identity (see also Case Study 110).
DEMOCRATIC
Shanghai (China) PEOPLE’S REP
OF KOREA
REPUBLIC
Contrasted scenarios OF KOREA
JAPAN
CHINA
Most cities of the region have gone through gentrification of gentrification within AN
processes. Rapid economic and population growth, historic areas ESH
together with urban pressures and land speculation, have

ANMAR VIET NAM
nurtured gentrification processes with specific features

The city of Shanghai has gone through massive urban de-
velopment over the last two decades, with urbanized areas
that differ from European or North American examples. expanding to the other side of the Huangpu River, where a
On the one hand, the overall quest for competitiveness major central business district has been developed. Many
has driven massive urban renewal projects, which aim to old housing districts were replaced by high-rise buildings,
upgrade urban infrastructure and services, improve modern districts and green spaces. Similarly, numerous
housing facilities and encourage tourism. These large historic districts were redeveloped into entertainment, com-
state-led programmes, supported by property developers, mercial and upper-class residential areas. This state-led
often lead to ‘new build’ gentrification processes, whereby effort resulted in the direct, large-scale displacement of
new housing facilities – including gated communities and thousands of low income households to the periphery,
high-rise residential buildings – are erected for the middle arguably reducing their socio-economic prospects and
and upper classes, resulting in a loss of traditional housing
quality of life.
and historic precincts. On the other hand, a renewed
The regeneration of the Xintiandi district, located in the city
interest in historic areas, acknowledged for their potential centre, is one of the most prominent cases of gentrification
economic value, has recently driven significant investment in the city. In this district composed of nineteenth-century
in urban conservation and regeneration, for tourism or shikumen, a large-scale project conducted by a development
residential purposes, which has also contributed to company displaced approximately 3,500 households. The
gentrification. area has now become one of the city’s major tourist attrac-
tions, serving as a pedestrian ‘lifestyle’ centre, with a series
This double-sided gentrification led to the unprecedented of high-end cafeterias, restaurants and upper-class housing.
displacement of low-income populations compared to
similar situations in the Western world. The development The regeneration of Tianzifang area, in contrast, stands as
agenda, combined with an overall lack of national and
a case of urban conservation and regeneration where gen-
local policies and legislation aimed at ensuring a diverse
trification was successfully addressed. This neighbourhood,
located within the Xintiandi district, comprises a web of nar-
social mix and housing security, directly contributed to row alleyways and 1930s shikumen housing. In 2006, the
the eviction of vulnerable populations. The development area was scheduled for demolition to accommodate a rede-
of new city centres has primarily attracted the upper- velopment project. However, opposition from local commu-
middle classes, contributing to class-based migration and nities, business owners and a renowned artist persuaded
social segregation. In many large cities, low-income the authorities to preserve the neighbourhood.
households have been pushed out of historic areas and Source: WHITR-AP, report for Study Area 6
displaced into the periphery, with a significant impact on
their quality of life and traditional practices.
100
STUdY AREA
Bukchon Hanok, Seoul (Republic of Korea)

© ianden/Shutterstock.com*
Several initiatives have been implemented to counter

gentrification. Community protests against displace-
ment, underpinned by the engagement of local and
national organizations, have managed, in some cases,
to advocate for the preservation of historic neigh-
bourhoods and to avoid the demolition of traditional
homes, thereby maintaining existing livelihoods. The
regeneration of the Tianzifang district in Shanghai
(China) and of Rattanakosin Island in Bangkok (Thai-
land) are some successful examples, where public
consultation and engagement managed to halt evic-
tions. The engagement of international partners,
including UNESCO, the World Bank and UNdP, has
also been instrumental in supporting vulnerable com-
munities and advocating for urban conservation and
regeneration.
However, building comprehensive approaches to urban

regeneration and conservation must remain a priority. In
most countries, there is still a clear disconnect between
the urban heritage and urban development. Urban
development is addressed through diverse approaches
across the region, in accordance with specific national
urbanization scenarios. In countries such as Australia,
urban regeneration has been in practice for over 50 years
and urban heritage is better incorporated in urban
development perspectives. A shift in focus can also be
observed from urban regeneration to urban sustainability
in the case of Australia and New Zealand, as well as from
physical redevelopment to sustainable regeneration, in
the Republic of Korea. These comprehensive approaches
should be further disseminated across the study area so
that culture can serve as a means of renewing
urbanization strategies.
101
Coordinator of the regional study: THE SCHOOL OF

RESTORATION ARTS AT WILLOWBANK
Willowbank is a Canadian independent educational institution, founded

in 2006 and well-known for its School of Restoration Arts. The school
offers a post-secondary degree in Heritage Conservation combining
academic and apprenticeship learning, and is also home to the Centre
for Cultural Landscape, which provides a forum for cultural landscape
theory and practice. By engaging in joint research programmes,
Willowbank has developed a wide network of urban conservation
professionals throughout North America. With a distinct,
multidisciplinary perspective integrating theory and hands-on practice,
Willowbank is known around the world for its expertise in urban
conservation, the urban landscape, contemporary design in historic
settings, urban and rural planning and community revitalization.
102
STUdy area
Canada, United States of America.
HIGHLIGHTS
The history of North American cities began with the spread of
European settlements from the seventeenth century onwards
and was strongly accelerated by the nineteenth-century
Industrial Revolution.
Modernist practices and the rise of the automobile were key
in pushing urban development patterns towards concentric,
high-rise development in city centres and suburbanization.
Urban renewal efforts, as well as the priority given to new
construction over adaptive reuse, led to the widespread
destruction of dense, mixed-use and low-rise historic
neighbourhoods.
As immigration is a defining feature of North American
societies, cultural diversity has shaped urban landscapes and
fostered the emergence of social justice and participatory
democracy movements.
Culture has been at the core of many urban regeneration
strategies initiated after the 1960s, particularly as part of
post-industrial decline reversal strategies.
The non-profit sector has been the most innovative advocate
for urban conservation and regeneration, while the private
sector has contributed a significant part of the needed
investment.
A new vision of sustainable urbanism is emerging, one that

combines heritage, contemporary design and environmental
awareness, and favours polycentric, dense and mixed-use
cities.
103
Toronto (Canada)
© Jonathan Castellino
A BRIEF HISTORY OF URBAN

DEVELOPMENT IN NORTH AMERICA
The history of North American cities typically begins with

the spread of European settlements in the seventeenth
century, which largely erased indigenous settlements and CASE STUDY 38 CANADA
their nomadic and agricultural landscapes, although traces

New Orleans (United States of America)
still remain in rural areas today. These new settlements, UNITED STATES
Vietnamese Americans in
whose growth was generally driven by the private sector,
OF AMERICA
New Orleans East: countering
developed along transportation routes – first river systems
environmental disasters
and then railway networks – and expanded outwards in
MEXICO
through farming
concentric rings. In many areas, the state served only as a
regulating entity, influencing capital investment through Up to 70% of urban households practise agriculture in some
land grants, among other inducements. form and produce as much as one-fifth of the world’s food
supply. Despite making a vital contribution to family nutrition
Later, the Industrial Revolution gave new impetus to and the family economy, urban agriculture is sometimes invis-
urbanization. In 1800, only 5% of North America’s ible to policy-makers and urban planners, and not adequately
population was urban. Yet by 1900, the figure was over taken into account as part of the larger agricultural sector.
40% (Monkkonen, 1988). The first suburbs began to
emerge at this time, encouraged by the creation of the Over the past four decades, many Vietnamese emigrated to
streetcar in the late nineteenth century. These early the greater New Orleans, Louisiana, area in the USA, and
suburbs were often characterized by rectangular street
soon converted useless back lawns and vacant lots to pro-
ductive kitchen gardens or devoted their apartment bal-
grids and narrow lots, with commercial establishments conies to container gardens, growing Asian herbs and
and walkable residential areas found along streetcar vegetables that could not readily be found in local super-
corridors. The environmental and social impact of the markets. Surpluses were gifted or bartered to neighbours,
Industrial Revolution also sparked numerous urban social or sold at a weekend farmers’ market. With Hurricane Kat-
reform movements and the widespread use of zoning and rina in August 2005, low-lying and low-income areas of
utopian planning models in cities across the continent. New Orleans East, including the Vietnamese American com-
munity, were hit particularly hard by the devastating flooding
that followed the hurricane.
[The] chief function of the city is to convert power into
form, energy into culture, dead matter into the living symbols Ambitious plans arose to establish a Viet Village Urban Farm
of art, biological reproduction into social creativity. (VVUF), consistent with the larger development strategy to
Lewis Mumford, historian and philosopher avoid resituating housing in low-lying flood zones, which
would instead be devoted to green uses. Project plans stalled,
however, and environmental disaster struck again, with the
Deepwater Horizon oil spill of April 2010, the largest maritime
In the twentieth century, modernist practices strongly oil spill ever. Some 20,000 Vietnamese Americans constituted
shaped urban development. Urban planners, embracing at least half of the Gulf of Mexico shrimp fleet and one-third
the ideals of rationalism and the separation of functions, of the community had depended on it for their livelihood.
particularly through zoning, contributed to the concentric
expansion of cities, developing transit systems which A new initiative arose: Vietnamese American fisherfolk,
connected residential areas to business districts. shrimpers and gardeners would learn aquaponics so they
Modernism, along with increasing speculative pressure, could intensify their agriculture and gain a better living,
also led to the development of high-rise buildings for both
while simultaneously avoiding both the polluted waters of
commercial and residential purposes, first in Chicago
the Gulf and the polluted soil of parts of New Orleans East.
The VEGGI Farmers’ Cooperative provides training and tech-
(United States of America), which pioneered this practice nical support in the new agricultural methods, constructs
in the late nineteenth century, followed by New York aquaponics systems and garden greenhouses for its mem-
(USA) and others in the early twentieth century. bers, and markets their produce to New Orleans’ finest
restaurants. The cooperative also operates a Community
Modernist architecture itself reflected these new urban Supported Agriculture scheme, allowing subscribers to re-
forms and zoning practices. The office tower with side- ceive a weekly box of seasonal produce, thereby providing
walk retail gradually became the basic model for central a more predictable and regular income to members.
business districts, encroaching upon older, mixed-used Prepared by Frank Proschan
models. The industrialization of architecture, which
emphasized simplicity and clarity of form, was notable for After the Second World War, the automobile became the
incorporating emerging technologies in iron, steel, glass focal point of North American lifestyles, strongly influenc-
and reinforced concrete. As a result, older urban areas ing urban development patterns. A large network of
often have juxtapositions of pre-existing low- and mid- arterial roads and highways, established with federal gov-
rise buildings and newer high-rise development. ernment support, soon criss-crossed the country. Along
104
STUdY AREA
Main Street and Shelton Square, Buffalo

(USA), 1911.
© W.H. Brandel/United States Library of
Congress Prints and Photographs Division
with a mortgage system which favoured suburban home- throughout history and emerging signs of a return to rural
owners, these highways fuelled mass suburbanization areas are now visible. At the same time, young people in
from the 1950s onward. The single-family suburban particular are increasingly leaving the suburbs in favour
home gradually became the dominant model: in 2000, of the dense, multiuse and walkable centres of older cities.
50% of Americans were suburban dwellers (Hobbes and Universities and private companies are also investing in
Stoops, 2002; Turcotte, 2008). Suburbanization, together older buildings in central areas, rather than constructing
with ill-conceived urban renewal projects, contributed to new suburban developments.
the decline of city centres. Although alternative models
of urban design are now gaining popularity, the North
American urban pattern remains highly dependent on FROM SEGREGATION TO CULTURAL
cars and fossil fuel, while government spending still DIVERSITY
favours highways over public transit systems.
North American cities have historically been marked by
In the twenty-first century, North America, as a mature long periods of cultural assimilation and imperialism.
urban territory, seems to have peaked at an overall European settlers, convinced of their own cultural
urbanization level of about 81%. Including metropolitan superiority, set out to ‘civilize’ native communities by
areas, the region includes 2 cities above 10 million erasing their languages and traditions. Similarly, African
inhabitants and 7 above 5 million (United Nations, 2014). American culture in the United States was both
Rural populations have remained relatively stable subjugated and appropriated by the Europeans. This
marginalization of cultural communities sometimes
C A S E ST U DY 39 CANADA resulted in urban ghettoes, with suburban-urban tensions
Seattle (United States of America) increased by discriminatory ‘redlining’ practices and
Leveraging cultural diversity UNITED STATES ‘white flight’ to the suburbs.
OF AMERICA
for social justice
Urban cultures have also been characterized by a
tendency towards conformity. As a result of the social
MEXICO
Although individuals of European ancestry constitute the ma-

jority of Seattle’s population, its fastest-growing segments problems created by the Industrial Revolution and the
are Latino, Asian and African American, while its Native devastations of the two World Wars, rationalism became
American community remains culturally significant. Integrat- the norm, leading to certain patterns of social
ing this diversity into municipal and non-profit programmes stratification and uniformity. Normative behavioural
and policies is therefore a key challenge. One way Seattle patterns, including racial stereotypes and gender roles,
and the surrounding King County have tackled this issue is tended to privilege whites and men. Early immigrants,
often from rural origins, were sometimes made to
to provide considerable support to the arts and cultural in-
abandon their traditional practices, notably urban
dustries, understanding their power as leverages of economic
growth, sustainable development and social justice. In an ef-
fort to combat institutional racism through culture, the city’s agriculture or multi-family living arrangements, to fit into
Office for Civil Rights engages the region’s increasingly di- the mainstream culture. The single-family suburban home
verse urban community in regular cultural activities. Addi- gradually became a dominant model, seen as a sign of
tionally, 4Culture, King County’s cultural services agency, upward mobility and the pursuit of the ‘American dream’.
supports immigrant artists, while Seattle’s Department of
Neighbourhoods assists Duwamish tribal members and Viet- Immigration is a defining feature of North American
namese immigrants with harvesting and food-related cultural societies and the main contributor to urban growth. This
practices. The Duwamish Longhouse and Cultural Centre was is particularly the case in Canada, which has among the
also recently opened on the banks of the Duwamish River, highest immigration rates per capita in the world. While
immigration is rather diffuse in the United States, in
allowing the Duwamish people to reassert their historic rights
Canada 63.4 % of immigrants lived in its 3 largest cities in
to the area and contribute to discussions about sustainability.
The City’s Historic Preservation Program has recently under-
taken a South-east Seattle Community History Project, look- 2011, although both countries have recently experienced
ing beyond architecture to issues of ethnic heritage and an increased regional dispersion of entering immigrants.
diversity, transportation, indigenous and settler place names, In Toronto, first-generation immigrants make up 46% of
culinary traditions and childhood experiences. Creative Jus- the urban population (Statistics Canada, 2013), while in
tice is another King County arts-based programme, which New York, 56% of the population is made up of first- or
provides an alternative to incarceration for young people second-generation immigrants (Kasinitz et al., 2006).
caught up in the criminal justice system.
Source: School of Restoration Arts at Willowbank, report for Study Area 7
105
Migration patterns have gradually shifted towards a higher (Canada). The contribution of immigrants and indigenous
proportion of non-European migrants. In the United people to the building of North American culture is also
States, European settlers arriving on the East Coast were increasingly recognized and reflected in the urban
gradually replaced by Latin American or Asian migrants environment through the development of sites of memory
arriving mostly from the West and South. Immigration (see also Case Study 59).
regulations were broadened in the 1960s in both countries CASE STUDY 40
to move away from a Eurocentric bias and welcome more
diverse populations. However, policies diverged in the The Main Street program: urban regeneration in
1970s, when Canada significantly increased the rate of small towns (United States of America and Canada)
inflow, while the United States continued to debate the
benefits and challenges of immigration.
Focusing on small towns where Main Street vitality was
sapped by large-scale shopping centres and growing resi-
dential vacancies, the National Main Street Center, a sub-
Internal migration and mobility have also been a strong sidiary of the National Trust for Historic Preservation based
pattern in the region, mostly driven by economic motives. in Washington DC, has brought 2,000 main street corridors
Although annual mobility has decreased from 20% in the back to life over the past 35 years in Canada and the United
1940s to 12% today,1 this population has increased in real States. Some 250,000 buildings have been regenerated and
terms and it remains a key feature of urban development. US$60 billion has been generated in private and public in-
As a result, new residents continue to arrive in historic vestment. Both commercial and residential uses are ad-
urban areas. Heritage conservation practices in the dressed through heritage conservation, cultural initiatives,
region, therefore, have had to deal with this cultural and shared marketing and economic restructuring – an approach
physical evolution and shift their focus to regeneration
which has since been adapted to larger cities.
and adaptive reuse. With increasing movement at the Source: School of Restoration Arts at Willowbank, report for Study Area 7
global level, this capacity of historic urban areas to absorb

new migrants is an important benefit.
BRINGING CULTURE TO THE FOREFRONT:
Beginning in the mid-twentieth century, cities increasingly EVOLVING APPROACHES TO URBAN
became the sites of social justice movements aimed at CONSERVATION AND REGENERATION
fostering inclusive, multicultural societies. In the United
States, the Civil Rights Movement of the 1950s and 1960s Urban centres with distinct historic layers can be found
worked to end racial segregation and discrimination, while throughout North America, displaying diverse patterns of
in Canada, the debate shifted from biculturalism between urban morphology and architecture. However, important
French and English communities in the 1960s, to geographical differences exist; the East Coast is
multiculturalism involving indigenous communities and characterized by numerous layers of history embedded
new immigrants in the 1970s. despite some resistance, in pre-industrial urban forms, street patterns and
multiculturalism is now seen as the new expression of architecture. While its earliest sixteenth-century
national identity in Canada, while in the United States, the settlements were centred on trade routes and ports, in
foreign-born population is at its highest level in more than the late eighteenth century, public architecture and
a century. planning reveal a more conscious Classical influence in
the United States, reflecting its republican beliefs, and a
Cultural diversity is now reshaping urban landscapes in more picturesque and Gothic Revival influence in Canada,
innovative ways. The growing diversity of North American reinforcing its ties to Britain. An overall trend towards
cities such as Los Angeles – which is around 48% Latino2 Victorian eclecticism emerged in both countries in the
– and Vancouver – which is around 45% Asian 3 – is mid-nineteenth century. Reflecting the wealth generated
becoming the norm. Many urban neighbourhoods are no by the Industrial Revolution, buildings exhibited complex
longer associated with one immigrant group but with forms, a broader range of materials and ornate detailing.
successive waves of immigrant populations, creating a The urban park also became a defining feature of the
layering of cultural connections to place. As many American urban landscape. On the West Coast, many
indigenous people are now urban dwellers, their insights urban settlements underwent their most significant
are slowly becoming part of discussions on urban growth in the twentieth century, with modernist forms
development, notably as they relate to the relationship overlaid on earlier Spanish influences.
between culture and nature. Ethnic and racial diversity is
increasingly recognized as an asset and the focus of New construction, seen as a key marker of progress, has
numerous academic studies (the Harvard Pluralism long been preferred to the reuse of existing buildings.
Project), policies (government multicultural programmes) Professional training for architects, planners or engineers
and private and non-profit activities (the recent installation has consistently reflected this focus, leading to a relatively
of the Aga Khan Global Centre for Pluralism in Ottawa limited understanding of historic buildings within
professional practices. Policy-makers, financial institutions
and insurance companies have also given priority to new
1
See: US Census Bureau at construction in their respective policies, and many building
http://www.census.gov/hhes/migration/data/cps/historical.html regulations promote the diffusion of uniform standards
2
See: US Census 2010 at http://www.census.gov/quickfacts/
106 See: Statistics Canada 2011 at https://www12.statcan.gc.ca and encourage replacement rather than reuse.
3
STUdY AREA
First Nations’ totem poles and Kamui

Mintara’s ’Playground of the Gods’ in
Burnaby, overlooking Vancouver (Canada)
© Province of British Colombia/Flickr.com*
This urban development paradigm has had devastating Another important political catalyst for the preservation
impacts on historic areas. demands for replacement and of older cities in the United States was the 1966 United
standardized environments have often led to the loss of States Conference of Mayors. In their book With Heritage
dense, mixed-use and low-rise historic neighbourhoods, So Rich: A Report, mayors from across the country called
particularly in inner-city areas. Failing to recognize their for the regeneration of their cities’ historic areas, many of
inclusiveness, flexibility and diversity, earlier urban which had been undermined by urban renewal and
patterns created by immigrant cultures have been suburban development patterns (Rains and Henderson,
undermined in the name of uniformity. The result was 1966). This milestone event paved the way for the Historic
unsustainable urban landscapes and energy patterns and Preservation Act and a strong tax-based funding framework
a loss of a distinct sense of place through regularization. which continues to support urban regeneration efforts to
this day.
In more recent years, the urban sustainability dialogue
itself has tended to prioritize new construction. There has The scope of urban conservation activities has gradually
been a failure to recognize the values of older urban increased over time. In its early days, preservation
areas, despite their inherent resilience. Historic buildings focused on East Coast properties and gave priority to the
have been criticized by professionals as being energy- colonial period and sites connected in the United States
inefficient or structurally unsound, assumptions which are with independence. Conservation activities then
often flawed. Even the idea of ‘sustainable communities’ broadened to target nineteenth-century buildings and
is sometimes associated with the construction of entirely neighbourhoods, which reflected a period of great
new greenfield developments, while energy efficiency industrial wealth. Attention is now gradually turning to
labels are often granted to new buildings, including those twentieth-century landscape, architecture and urbanism,
which disrupt the local urban fabric. Similarly, government although ambivalence about modernist design prevails.
funding for energy upgrades often leads to the removal Initially focused on individual monuments, heritage
of important components of historic buildings. conservation activities gradually extended their scope to
an understanding of larger urban areas. This has resulted
From the 1950s to the 1980s, the urban renewal ratio- in more discussion about the relationship between urban
nale was used to justify the destruction of many historic conservation and contemporary design.
areas. Low-income urban areas, often inhabited by mi-
norities, were disproportionately targeted for such ‘slum
removal’ projects, despite their rich social diversity and Old ideas can sometimes use new buildings.
vibrant mixed-use character. With their neighbourhoods New ideas must use old buildings.
torn down, these communities were scattered among Jane Jacobs, author and activist
low-income housing blocks built according to modernist
theories, many of which proved dysfunctional. As the middle-
class moved to outlying suburbs, encouraged by govern-
ment policies such as road construction and expanded Culture and heritage have been instrumental in reversing
home mortgage financing, many inner city areas were left post-industrial decline. de-industrialization has led to a
to lower-income families and racial minorities. Both pri- series of economic crises and the abandonment of many
vate and public investment in these areas declined, con- urban areas, particularly in the Rust Belt (a region
tributing to growing crime and vacancy rates. A negative extending from the North-east to the Midwest which has
image of inner city areas became part of popular culture, suffered from increasing poverty, population loss and
creating a further cultural obstacle to regeneration efforts. decay due to the decline of manufacturing). This situation
contributed to the emergence of new regeneration
Grassroots efforts to conserve urban heritage gained in strategies in existing industrial areas – so-called
strength in the 1960s, often in response to the destruc- ‘brownfield redevelopment’ - as well as in depopulated
tion of historic districts in the name of large-scale residential and mixed-use areas. These strategies often
infrastructure projects. In many cases, new and widened put clear emphasis on cultural recovery. The recovery or
roadways were the main culprit. In New York City (USA), reuse of industrial heritage, particularly for creative
the construction of more than 13 major expressways led activities, is a recurrent feature.
to the displacement of thousands of residents and the
loss of several historic neighbourhoods. Community out- Growing interest in historic urban areas has stimulated
rage, combined with the efforts of urban thinkers such as innovative planning practices. It is increasingly recognized
Jane Jacobs, who led the successful effort to defeat the that new urban policies must be created for the post-
proposed Lower-Manhattan Expressway through Green- industrial era. While detroit is a renowned laboratory for
wich Village in 1964, proved essential to undermining the reinventing the city, creative thinking is also emerging in
urban renewal paradigm. other ‘legacy’ cities such as Cleveland and Buffalo (USA)
107
or Hamilton (Canada). New initiatives launched with the In the United States, federal legislation provides a strategic
support of Community development Corporations, such framework for urban conservation and regeneration, with
as the Bedford Stuyvesant Restoration Corporation in the 1966 National Historic Preservation Act, the 1976
New York (USA) and Evergreen Brickworks in Toronto Tax Credit Act, the 1960 National Environmental Policy
(Canada), address issues such as affordable housing, Act and aspects of the 1937 Housing Act serving as the
community services, arts and culture, and job creation. main federal pillars. This framework has fostered a certain
CANADA
level of cohesion between the federal, state and municipal
levels and provides a strong incentive for private
CASE STUDY 41
Los Angeles (United States of America)
UNITED STATES
investment. Federal tax incentives for the restoration
Rejuvenating inner-city Los OF AMERICA of historic properties have generated more than
Angeles through adaptive US$78 billion in private investment, helping to restore
reuse more than 40,000 historic properties and creating
MEXICO
around 2.5 million jobs since 1976.4

Los Angeles’ Adaptive Reuse Ordinance, initially approved
in 1999 for inner-city Los Angeles and extended to other
neighbourhoods in 2003, facilitates the conversion of old, Strategic urban revitalization programmes and policies
abandoned office buildings, including many historic build- have also been developed at the federal level, targeting
ings, into housing by ensuring that certain building and zon- low-income families in particular. One example, the
ing standards required of new construction are not applied Community Block development Grants Program, seeks
to older properties. More than 60 historic buildings have to foster the community-based regeneration of older
been converted into apartments, lofts and hotels thanks to neighbourhoods, while the Neighbourhood Stabilization
this ordinance, many of which had been empty for decades. Program, created after the 2008 financial crisis, supports
The populations of several targeted neighbourhoods have the creation of high-quality, energy-efficient housing
tripled in the last 15 years and 15,000 housing units are through the restoration of abandoned properties. Other
housing policies have been aimed at supporting low-
now available in older buildings in the inner city core. Sim-
income families through guaranteed mortgages and
ilarly, the Citywide Live/Work Ordinance permits, under cer-
tain conditions, joint living and working arrangements in
abandoned industrial buildings, encouraging the reuse of tackling segregation in public housing.
underutilized buildings by artists, who benefit from living
and working in a single space. Building on this pioneering States and municipalities have also designed specific
programme, Los Angeles has served as a pilot city for the legislation based on this federal framework. At the state
Partnership for Building Reuse, created by the National Trust level, State Historic Preservation Officers are charged
for Historic Preservation and the Urban Land institute, with with a wide variety of tasks, including implementing a
a view to develop recommendations for national strategies state-wide historic preservation plan and nominating
aimed at sustainable urban growth. properties to the National Historic Registrar. Municipal
Source: School of Restoration Arts at Willowbank, report for Study Area 7 governments also play a central role, particularly within
the framework of the 1966 Historic Preservation Act.
Official plans and zoning by-laws, local infrastructure,
GOVERNANCE AND POLICY green spaces and economic policies, as well as local
FRAMEWORKS: COMMON FEATURES, historic designations, are particularly instrumental. Most
CONTRASTING SYSTEMS major cities have adopted a preservation commission
model to coordinate the evaluation, designation and
Governance and policy frameworks in both countries management of historic properties.
illustrate the recent shift in urban conservation and
regeneration paradigms. Beginning in the 1970s, the In Canada, federal intervention in urban concerns remains
focus shifted from new construction to the adaptive reuse limited, with federal responsibilities largely confined to
of existing neighbourhoods. In the twenty-first century, housing and mortgage financing. Heritage legislation
urban regeneration has been increasingly linked with applies only to federal properties, with cultural and natural
broader environmental concerns. Legislation on culture, sites managed by Parks Canada. In total, 1,300 properties
the environment and urban development – most of which have been registered or restored through the Federal
was issued or updated in the 1960s and 1970s – is Heritage Buildings Program.5 Additionally, the joint federal
gradually evolving in the light of these new approaches. and provincial ‘Historic Places Initiative’ of 2001
established the Canadian Register of Historic Places, as
The local level, notably through official plans and zoning well as the Standards and Guidelines for the Conservation
by-laws, has made a particular impact. Overall, there is of Historic Places in Canada. Furthermore, the 1971
more coordination between different levels of government National Multiculturalism Policy promotes the freedom
in the United States than in Canada, where federal to preserve, enhance and share cultural heritage, while
involvement has been minimal. At the local level, both other federal programmes provide significant funding for
countries have mechanisms in place for the designation cultural infrastructure and activities. Provinces play a
and protection of historical buildings and districts. significant role in urban conservation and regeneration,
Municipalities are also where some of the most important
new urban initiatives occur, providing laboratories for
See: http://www.nps.gov/tps
108
4
experimentation. 5
See: http://www.historicplaces.ca
STUdY AREA
Abandoned hospital in Pittsburgh (USA)

© Brook Ward/Flickr.com*
although planning legislation varies considerably across of the World Cultural and Natural Heritage since 1976,
the country. Historic preservation is separate from regular today Canada is home to 18 World Heritage properties,
planning legislation in central and eastern Canada, while including two urban sites – the Historic district of Old
more integrated approaches are promoted in the west. Quebec and the Old Town Lunenburg.6 While the 2003
Each province also has its own environmental policy, Convention for the Safeguarding of the Intangible
resulting in a lack of consistency at the national level. Cultural Heritage has not been ratified by the
Government, the Province of Quebec has included many
Municipalities are the most directly involved in urban of its provisions in its 2011 Cultural Heritage Act. Canada
development compared to other levels of government. played a key role in the development and ratification of
One could argue that Vancouver has the most compelling the 2005 Convention on the Protection and Promotion
intersection of culture, heritage and sustainability in its of the diversity of Cultural Expressions, which reflects its
planning activities, with First Nations communities given own Multiculturalism Act introduced in 1988. The 2011
particular influence in planning decisions. In Toronto, a Recommendation on the Historic Urban Landscape was
strong non-profit sector has developed new models of also recently adopted by the City of Edmonton and the
culture-based urban regeneration. Moreover, the province of Alberta. The United States, one of the first to
province of Quebec has always integrated culture into its ratify the 1972 World Heritage Convention in 1973,
planning efforts according to the European model, while contains 23 World Heritage properties,30 some of which
the former Rust Belt city of Hamilton represents a model are located in urban areas (such as Independence Hall and
of culture-based urban regeneration. the Statue of Liberty), although none encompass entire
urban neighbourhoods or districts, due to its legal
In both the United States and Canada, national governance provisions. The United States has yet to ratify the 2003
continually balances public and private sectors demands. Intangible Heritage Convention and the 2005 Convention
The government provides a framework for municipal on the diversity of Cultural Expressions.
governments, non-profit organizations and the private
sector to interact in favour of urban conservation and CASE STUDY 42
regeneration. This relatively limited government control is
Historic areas pioneering ecological urbanism
a challenge, but also an opportunity to stimulate connections
(United States of America and Canada)
between culture and community or corporate self-interest.
Historic urban areas across North America have been the prime
The non-profit sector has been the most innovative witnesses of shifting attitudes towards agriculture and food
advocate for urban conservation and regeneration efforts. security in the city. Historically, North America’s eighteenth-
The flexibility of non-profit organizations and their and nineteenth-century cities were sites of significant food
capacity to work across sectors are one key to their production – due largely to the rural roots of many of its mi-
success. Through their pilot projects, they often pave the grant and immigrant communities – a phenomenon which
way for further investment or official designations. Non- disappeared due to the efforts of late nineteenth-century
profit organizations have been instrumental in addressing urban reformers. Today, these same areas are often popu-
issues of sustainability and cultural diversity, as well as lated with new urban farms and community gardens on
promoting the benefits of restoration and reuse of existing
abandoned plots (as in Detroit) or the rooftops of historic
buildings (as in New York). Urban ecology is also a new focus
buildings over new construction. Many arts and culture of non-profit organizations seeking to connect environmental
initiatives are also developed by the non-profit sector. issues with social and cultural concerns, as evidenced by the
Centre for City Ecology in Toronto, the Urban Ecology Centre
The private sector, on the other hand, has contributed the in Montreal and the Ecology Action Centre in Halifax.
majority of the capital investment involved in urban Source: School of Restoration Arts at Willowbank, report for Study Area 7
conservation and regeneration efforts. Funds have been
used to purchase, restore and occupy historic properties,
as well as to construct sensitive infill developments. Over CONTEMPORARY TRENDS AND
the last few decades, the public sector has become more INNOVATIVE SOLUTIONS
supportive of private sector involvement; in many cases,
seed funding is provided by the government, while the Recent trends in public opinion suggest a shift towards
majority of funding is provided by the private sector. the embrace of a more sustainable form of urban living.
National organizations such as the National Trust for Public transit, walkability, local food markets and cultural
Historic Preservation in the United States have created diversity are in growing demand among the public and
innovative funding arrangements to match private young people in particular. This evolution is stimulating a
investment with public sector programmes. market-driven interest in restoration and adaptive reuse
of older properties, as historic areas often provide more
The implementation of UNESCO Culture Conventions affordable housing and commercial retail opportunities.
varies between Canada and the United States. A State
Party to the 1972 Convention Concerning the Protection 6
109
These areas also offer the unique historical and cultural efforts to improve their living environments continue to
richness that comes from their indigenous and immigrant spark urban conservation and regeneration. Contrary to
histories. other countries, notably in Europe, tourism has not been
the primary focus, despite its obvious and direct economic
CASE STUDY 43 benefits. As a result, financial leveraging generally targets
Toronto (Canada) restoration and adaptive reuse rather than tourism-
Non-profit and community- oriented, museum-style restoration.
CANADA
led regeneration efforts
In recent years, the economic value of urban conservation
UNITED STATES
OF AMERICA
In Toronto, non-profit organizations are taking the lead in de- and regeneration has been increasingly recognized.
veloping culture-based regeneration strategies, for which These benefits were explored in a 2014 study conducted
they raise significant funding from both governments and in the United States by PlaceEconomics, focusing in
particular on the historic preservation tax credit. The
private donors.
The Evergreen Brickworks is a flagship project run by the research showed that for each US$1 million of tax credit,
Evergreen non-profit organization, which revitalized a large US$4 million of private investment is leveraged and
abandoned industrial site and its surrounding floodplain US$2.1 million in economic activity is catalyzed. Overall,
through the adaptive reuse of the historical buildings, the the programme has generated a total of US$109 billion
construction of contemporary energy-efficient architecture in private investment, created 2.4 million jobs through
and the restoration of the river valley ecosystem. The site of- around 40,000 rehabilitation projects and paid back
fers a farmers’ market and spaces for creative activities, and around US$5 billion more in tax revenues than was
hosts conferences on urban sustainability. granted in tax incentives. Research shows that 75% of the
economic benefits of these projects stay within local state
Artscape, a non-profit organization which focuses on creating and city economies (PlaceEconomics, 2014).
spaces for creativity and community-building through the arts,
works by purchasing historic and underused buildings and
transforming them into live-work spaces for artists and com- The economic performance of older urban areas was also
munity activities. Artscape projects in Toronto currently provide underlined in another study conducted by the
live/work spaces for 2,500 people, offices for 100 non-profit Preservation Green Lab in 2014, which found that the
organizations and 32 public venues which engage 250,000 characteristics of older urban areas – density, walkability,
people annually through exhibitions and performances. and an abundance of mixed-use developments – perform
better economically than newer areas. In Seattle (USA),
The Tower Renewal Initiative addresses mixed use in housing for example, older urban areas contain 36.8% more jobs
districts. In these high-rise 1950s modernist developments per square metre of commercial space. They also have a
where functional zoning limited the possibility of interactions, higher proportion of independent, locally-owned retailers,
new small-scale mixed-use zoning has been developed to and almost twice the rate of women and minority-owned
businesses. Overall, restoration and regeneration
allow private owners of high-rise buildings to add ground
level small-scale retail and to foster imaginative infill. Seed
funding was also provided for neighbourhood cultural orga- activities have a sizeable economic impact at the local level
nizations to create community-centred programming. (Preservation Green Lab, 2014).
The creative economy has also proven to be particularly

Source: School of Restoration Arts at Willowbank, report for Study Area 7
resilient in times of economic recession. Artists are often

the first to move into depressed areas, often sparking an
Recent urban design movements also reflect this growing economic and social renaissance. Innovation is also more
focus on sustainability. New Urbanism, an urban design common in city centres than in suburbs: the highest levels
movement which rose to prominence in the 1990s, of venture capital investment in the United States are in
emphasizes walkability and draws upon traditional, post- the historic city centres of Boston, New York and San
war city design as a guide for new development. More Francisco. A federal study conducted jointly by the U.S.
recently, the principles put forward by the Smart Growth Bureau of Economic Analysis (BEA) and the National
school (walkability, density, public transit, strong public Endowment for the Arts (NEA) released prototypes
involvement, mixed-use development, housing diversity) estimates in 2013 and found that arts and cultural
correspond closely with historic urban landscapes. production accounted for about 3.5% of GdP over the
years 1998-2011, most of which is concentrated in urban
Today, the driving force behind urban conservation and areas (Kern et al., 2014).
regeneration is found at the local level, where municipal
politicians, planners, activists, non-profit organizations Beyond the economic benefits of urban conservation,
and private developers are exploring more integrated gentrification has also emerged as a key challenge. Property
approaches. Innovative design movements such as values in restored historic districts tend to increase more
ecodesign are likely to gain strength in the field, before rapidly than surrounding areas, threatening the ability of
academics begin to theorize and policy-makers begin to long-time residents to remain in their communities.
provide a regulatory framework. Community-based Although it is difficult to suggest a direct link between
110
STUdY AREA
Washington DC (USA)
© Ted Eytan/Flickr.com*
historic preservation and gentrification, many historic CASE STUDY 44

neighbourhoods have gone through a reinvestment Montreal (Canada)
process after a long era of neglect. This infusion of private Building on design and
sector funding is often critical to rescue decaying creativity to stimulate urban
properties, but it can lead to an increase in rents and regeneration through
resulting gentrification, as seen in areas of San Francisco, collaborative planning
CANADA
Boston and Chicago (USA) or in Toronto (Canada),

UNITED STATES
OF AMERICA
jeopardizing these cities’ social and cultural diversity. As Canada’s second largest city, Montreal is home to 1.9
million inhabitants. The city is characterized by a multicul-
Civil society is increasingly working to counter tural population, with a bilingual French-English background
gentrification by promoting diversity. As economic, social and more than 80 languages spoken. Its creative potential,
and cultural diversity are increasingly recognized as critical notably reflected in its 25,000 design and architecture prac-
to healthy cities, numerous related initiatives are being titioners, has been acknowledged with the designation of
undertaken by non-profit and community associations to Montreal as a UNESCO City of Design in 2006. Following
mitigate gentrification. Requirements for income diversity
this international recognition, several initiatives were en-
gaged to enhance the contribution of design to a better
have been instituted in housing developments, in order to quality of life and urban environment, notably by the Bureau
avoid the creation of low-income enclaves. Affordable of Design of the City of Montreal and the UNESCO Chair in
spaces are also increasingly provided by the non-profit Landscape and Environmental Design in Montreal University.
sector for entrepreneurial activity, particularly related to These initiatives underlined the essential role of designers
the creative economy, as with Artscape or the Centre for in the planning process – beyond the operational stage they
Social Innovation in Toronto (Canada). are often confined to – and promoted collaborative planning
processes including professionals, citizens and institutions.
A new, comprehensive vision of sustainable urbanism has
emerged, one which combines heritage conservation, The Building Montreal UNESCO City of Design Initiative
contemporary design and environmental awareness into aimed to encourage design efforts to regenerate the city’s
a single approach to urban areas, one founded on the
identity and enhance its international reputation in the field
of design. From 2008 to 2012, 35 design and architecture
value of sustainability. Although this vision is not yet fully competitions were launched in 13 of Montreal’s 19 bor-
endorsed at the policy level, it is gaining momentum on oughs on a wide range of projects regarding urban spaces
the ground through community action. Going forward, it or buildings – from the design of street furniture or bus shel-
is likely that those cities which most fully embrace culture ters to larger public equipment such as sports complexes or
and cultural diversity will be the greatest beneficiaries of libraries – with a view to enhance design quality. Seven de-
such a paradigm. sign workshops also brought together designers, experts
and municipal professionals. The competitions, workshops
Polycentric, dense and mixed-use cities are now and public forums helped a greater number of designers to
increasingly preferred, as the old concentric paradigm is access the municipal public tender projects and raised public
coming under criticism. Also, the emphasis on awareness about the importance of quality in design and
transportation infrastructure is moving away from the
architecture. The selected projects are now being imple-
mented and will contribute to reshaping the cityscape.
private car to a wide range of public and private options.
Older settlements within expanding metropolitan areas The YUL/MTL Moving Landscape is another key initiative
have become new points of reference, stimulating reflection launched in 2011 with a view to use creativity and design
on how to build on their cultural strengths to make them to regenerate Montreal’s international gateway corridor.
more attractive. A growing scepticism of modernist and Composed of juxtaposed railways, motorways and water-
utopian planning models is becoming evident, along with way networks, this infrastructural corridor connects the air-
calls for place-centred approaches. The importance of port and inner city areas. Despite its primordial function, it
connectivity between urban spaces – through a variety of is regarded negatively for its banal, fragmented landscapes.
pathway options – is increasingly recognized and is now The objective of the project was to enhance the living envi-
addressed in more comprehensive ways. ronment and the expression of social and cultural values
through the preservation of landscapes that are meaningful
Professional practices and education programmes will
for communities. Following a long consultation process, a
strategic vision was elaborated and nourished through an
need to evolve to promote this integrated vision. Many international ideas competition in which 61 creative propos-
urban professionals are not well-trained in culturally als were issued at the regional level. A design workshop
sensitive urban development. Although the region has a was then held and 12 urban design proposals were elabo-
strong education and training system pertaining to urban rated on targeted areas of the gateway. A range of planning
conservation and regeneration, there are very few scenarios, intervention strategies and design guidelines
programmes preparing a new generation of students for were then elaborated, some of which have already suc-
the world that is emerging, where separate disciplines will ceeded in influencing the development of road infrastructure
need to overlap. However, the strong social demand from projects.
citizens for healthy communities and integrated Source: City of Montreal / UNESCO Creative Cities Network
approaches provides reason for optimism.
111
Coordinator of the regional study: PONTIFICAL CATHOLIC

UNIVERSITY OF CHILE
Founded in 1888, the Pontifical Catholic University of Chile is a public

university belonging to the Catholic Church. One of the most ancient
and prestigious educational institutions in Latin America, the University,
and in particular its Faculty of Architecture, Design and Urban Studies,
has developed wide expertise in heritage conservation and urban
development within. The University is also responsible for the regional
coordination of Red Alvar, a European and Latin American university
network aimed at strengthening cooperation in the areas of teaching,
research and capacity building, and participates in international urban
conservation platforms. In addition, it leads a number of operational
and research activities throughout the region, mobilizing high-level
specialized skills on urban conservation and regeneration.
112
STUdy area
Antigua and Barbuda, Argentina, Bahamas, Barbados, Belize, Bolivia
(Plurinational State of), Brazil, Chile, Colombia, Costa Rica, Cuba,
Dominica, Dominican Republic, Ecuador, El Salvador, Grenada,
Guatemala, Guyana, Haiti, Honduras, Jamaica, Mexico, Nicaragua,
Panama, Paraguay, Peru, Saint Kitts and Nevis, Saint Lucia,
Saint Vincent and the Grenadines, Suriname, Trinidad and Tobago,
Uruguay, Venezuela (Bolivarian Republic of).
HIGHLIGHTS
Although the built environment of the region’s cities was
strongly shaped by the colonial era from the sixteenth
century onwards, it reflects a variety of cultural influences,
including an important pre-Columbian urban legacy.
While the rise in megacities and urban sprawl are major
features of urbanization in the region, cities are also marked
by strong spatial fragmentation, which has generated
inequalities and prompted urban violence.
Diverse climatic and geographic settings have produced
various urban landscapes. The relationship between cities and
the environment, as well as their exposure to natural risks, are
important regional features.
While urban regeneration flourished in the region in the
1990s, it has expanded in the last decades, with the
renovation of public spaces becoming a key priority in local
policies.
Despite growing political engagement with urban

conservation, its impact on the wider urban development
processes is insufficiently recognized, which requires the
development of more comprehensive urban management
approaches.
While urban conservation and regeneration have historically

been government-led, they now involve a growing variety of
civil society and private partners, resulting in innovative
partnerships.
Addressing the issue of housing in historic areas remains

fundamental, especially as many areas have faced
gentrification processes or a loss of residential functions.
113
Rio de Janeiro (Brazil)
© T photography/Shutterstock.com*
URBAN SETTLEMENTS FROM THE European countries became role models, leading to
PRE-COLUMBIAN ERA TO MODERN TIMES significant urban interventions in public spaces, green
areas, public buildings, operas and theatres, and urban
Several major urban civilizations developed across Latin palaces for the elite. This ‘Republican heritage’ was
America during the pre-Columbian era. Among the most juxtaposed with the colonial urban fabric.
important were the Aztec, Zapotec, Olmec, Toltec and
Maya in Central America, as well as colonial era and were In the early twentieth century, the continent became more
discovered through archeological excavations. At the time engaged with the wider world. Latin American countries
of the Spanish conquest, the Aztecs and Incas were the enjoyed better standards of living and increased autonomy.
two dominant empires with complex infrastructure and To commemorate the first century of independence, new
road systems. Some existing cities, such as the Aztec capital urban infrastructure was developed, such as monuments,
Tenochtitlan (in present-day Mexico), were then among public buildings and urban promenades, as well as
the most populated in the world. The architecture of Aztec sanitation and housing infrastructure. New waves of
cities was characterized by an outstanding spatial migration resulting from economic growth stirred the first
composition, particularly in ceremonial centres such as signs of metropolization. Modernization accelerated and
squares, temples, platforms and palaces, which were the countries of the region opened up internationally, while
organized according to axial layouts. North America’s presence intensified. Modernization and
contact with intellectual avant-garde movements
produced outstanding modern architecture, which was
gradually incorporated into urban identities.
[…] it is necessary to consider the past as a historical
present, still alive, and to forge another ‘true’ present After the Second World War, urban economies grew
that could not be found in books […] When we design, rapidly in Latin America, as democratic governments
even as a student, it is important that a building serves a promoted industrialization and education. In the 1950s,
purpose and that it has the connotation of use. It is a new economic and international political context,
necessary that the work does not fall from the sky over its together with the region’s strong links with the United
inhabitants, but rather expresses a need. States, further stimulated industrialization and the
development of transport infrastructure. Yet from the
1960s, a series of political and economic crises began,
Lina Bo Bardi, architect
which led to stagnation in urban development and massive

rural to urban migration, as well as the subsequent growth
From the sixteenth to the eighteenth centuries, the of informal settlements. Following these ‘lost decades’,
colonial era shaped cities into cultural and economic economic growth resumed in the 1990s, which fuelled
centres. Following the discovery of the ‘New World’ by urban renewal through housing and public spaces
Spain in 1492, the Spanish, and later the Portuguese, programmes, while also increasing segregation and social
gradually settled along coastal areas, where cities were issues.
established as centres of political and commercial control.
Most of these cities were erected within less than half a In the Caribbean, urbanization is rather exogenous. Most
century, upon or near indigenous settlements. From these cities were built in the sixteenth century in coastal areas
cities, a vast network of smaller urban centres flourished, to meet colonial needs related to defence, marine trade
some of whom, including Quito (Ecuador) and Potosi and the plantation economy. As slavery was gradually
(Plurinational State of Bolivia), expanded into significant abolished in the nineteenth century, the workforce
settlements. In the second half of the eighteenth century, resettled to neighbouring villages and coastal cities, where
many cities were transformed as a result of the Spanish they created creole districts. This process contributed to
Bourbon modernization reforms, which aimed at polarized development patterns. In the nineteenth century,
stimulating a free trade economy, although their actual new residential areas were developed under European
impact is contested. plans. In the twentieth century, American-style central
business districts and upper class residential areas
Following several successful independence movements, emerged. After the 1950s, coastal development
industrialization fuelled urban growth throughout the intensified, complete with tourist resorts and low-density
nineteenth century. Old relationships between the new housing. In recent decades, informal settlements have
republics and their former colonizers stimulated economic developed around larger cities. Present-day Caribbean
expansion. demographic changes in the second half of the cities are the outcome of these overlapping historic layers.
nineteenth century led to the intense reuse of colonial
buildings for new functions. As trade and foreign Urbanization has accelerated across the region in recent
investment intensified, European migrants founded new decades, mainly fuelled by rural to urban migration,
cities, often linked with mining or agriculture. National although the longstanding dominance of the agricultural
identities blossomed, building on both colonial and pre- economy has resulted in delayed urbanization.
Columbian influences. The United States and many Urbanization levels are very heterogeneous – ranging from
114
STUdY AREA
Ollantaytambo (Peru)
© Shawn Harquail/Flickr.com*
28% in Guyana to 51% in Guatemala and 95% in Uruguay tend to have increased access to clean water. In the
– with sharp contrasts in city size and density; for example, Caribbean, the situation is more favourable in small-
despite their status as capital cities, Mexico City (Mexico) to medium-sized cities. Access to basic services is
and Georgetown (Guyana) are home to 20.8 million and increasingly included as part of urban regeneration
124,000 respectively (United Nations, 2014). Latin schemes. despite uneven access to education, housing
America has 198 large cities of more than 200,000 and basic services, quality of life is improving and the
inhabitants. Rapidly growing medium-sized cities account challenge now is to extend this progress across the society
for one-third of the region’s GdP and are likely to provide and to smaller cities. Consolidating local job markets also
favourable environments for businesses, while also remains an issue, although the overall employment
offering models for sustainable urban systems (McKinsey situation has improved.
Global Institute, 2011). CASE STUDY 45 SURINAME
‘Metropolization’ and urban sprawl have been strong

Rio de Janeiro (Brazil)
features in urbanization processes. Latin America is home
Recognizing the favelas as
to four megacities whose population exceeds 10 million
engines of creativity and BOLIVIA
BRAZIL
NATIONAL
people (United Nations, 2014) and is characterized by high

innovation STATE OF)
primacy, marked by the strong dominance of one major

PARAGUAY
Located in the south-east region of ARGENTINA

city in most countries. Cities have tended to expand over Brazil, Rio de Janeiro is the country’s
recent decades by incorporating existing formal and
U
second largest metropolis in terms of economy and popula-

informal settlements through various practices, including tion, with almost 6.5 million city inhabitants and an esti-
radial development or conurbation processes. In recent mated 12.2 million within its metropolitan region. Cradled
years, urbanization has entered a new phase of between mountains and the Guanabara Bay – an urban
densification, with reinvestment into previously landscape inscribed on the World Heritage List in 2012 – the
abandoned districts within urban areas. In the Caribbean, city uniquely fuses nature and culture. The urban fabric is a
urban sprawl has been nurtured by low-density individual sharp contrast of skyscrapers, manors, parks and open green
housing models and the rapid expansion of informal areas, and informal settlements – favelas. This diversity im-
settlements.
plies an archipelago of different socio-economic communi-
ties, and also inequality in social and urban conditions. 22%
of the city’s population (about 1.4 million) live in the favelas,
Latin American urban economies have been among the the highest figure in Brazil. Unlike urban growth patterns of
fastest-growing in the world over the last decade and other Latin American cities, in Rio de Janeiro, many of the
remain robust due to limited exposure to the global favelas have remained as urban enclaves within the city’s
financial crisis, solid internal and Chinese demand, and core.
structural adjustment policies. Some regional
manufacturers have reached leading global positions. This In recent years, there has been broader recognition of the
increasingly globalized economy is mostly service-based favelas as engines of culture and creativity and places of
and supported by international companies. In the economic and social innovation. Wider endorsement of the
Caribbean, economies are more dependent on North favelas as a trademark of the city has been demonstrated
America, relying on tourism, off-shore banking and tertiary
by their integration in the city’s branding process. This
activities, whose rapid expansion has strongly impacted
recognition has not only been by local community associa-
tions and NGOs but by the wider public and city authorities.
spatial organization. Tourism generates a significant Since 2010, residents of the low-income communities of
amount of income and jobs. With 22 million tourists visiting Cantagalo and Pavao have enjoyed better access to and
the Caribbean in 2014, tourism accounts for 14.6% of total from their homes and to public transport in the city by using
GdP and 13% of total employment in Caribbean countries, an 80 m elevator complex. The Rubem Braga Elevator Com-
figures which are expected to grow in the coming years plex, named after the Brazilian writer, has served as a major
(World Travel and Tourism Council, 2015). gateway linking different areas of the city via two 30-person
elevators, stairs and a pedestrian bridge. The complex was
Access to basic services has improved over the last two built on the premise of fostering inclusivity for the urban
decades, but remains uneven. While some countries, such poor and democratizing access to urban public spaces. As a
as Chile, have reached international standards, others still
result, community safety has improved and crime and the
face critical issues linked to natural disasters, informality
risk of landslides have reduced.
and inappropriate planning. In Latin America, larger cities Source: Coimbra University, report for Study Area 8
115
CASE STUDY 47
Spatial fragmentation has resulted in social inequalities Port-au-Prince (Haiti)
and urban violence. The shift to neo-liberal-style open Reclaiming public space HAITI
DOMINIC
REPUB
markets in the 1980s transformed compact and socio- through culture

economically polarized cities into more fragmented urban
areas. As a result, a dramatic expansion of informal Founded in 1749, Port-au-Prince
settlements has been accompanied by the rapid is now home to approximately 2.6 million people (Haitian
development of high-quality residential neighbourhoods. Institute of Statistics and Computer Science, 2015), although
These inequalities, together with education gaps, this figure is likely underestimated in view of the population
represent a major urban public policy challenge. In the explosion that Haiti’s capital has experienced in recent
Caribbean, inequalities are reinforced by the legacy of decades. Today, the city’s urban spaces are marked by
slavery, which has translated into spatial polarization poverty and inequality. Privileged populations have grad-
between areas that reflect the history of the colonizers ually abandoned the city, retreating to the surrounding
and those that reflect the history of the voluntary and slave
hills. The residents who have remained often live in an
labour force. Poverty and urban violence are key issues in
urban ‘no man’s land’, devoid of urban services, schools
and cultural facilities (Theodat, 2013). Inequalities and re-
most cities, some of which are home to the highest current political crises have contributed to growing urban
homicide rates in the world. violence, leading to the loss of public spaces and increased
spatial segregation. On 12 January 2010, an earthquake
CASE STUDY 46 devastated the city, claiming over 300,000 lives. Makeshift
Protecting mud construction in Chile: camps, rapidly set up to house the hundreds of thousands
comprehensive preventive instruments of people made homeless by the earthquake, marked the
city for years.
Chile contains 40% of the world’s adobe constructions,
which are particularly vulnerable to seismic activity. After Since the disaster, several initiatives have emerged – both
the 2010 earthquake, several comprehensive preventive informal and informal – to reclaim the public spaces of Port-
struments were developed, including a heritage reconstruc- au-Prince. While some have been managed by the public
tion plan and guides for reconstruction efforts aimed at authorities, others have been implemented by civil society
preserving the historic character of affected settlements. As actors. In the Champ de Mars square, once the largest public
a result from these efforts, the first earth construction norms open space in the city, photo exhibitions and artistic events
in 2013 focused on heritage reconstruction (Norm NCH are now beginning to take place. The cultural institutions,
3332:2013) were issued in 2013. which surround the square – the Musée du Panthéon Na-
tional Haïtien (MUPANAH), the Bureau of Ethnology, and the
Source: Pontifical Catholic University of Chile, report for Study Area 8 Triomphe cinema and theatre – were also renovated to ac-
commodate the public. The National Theatre of Haiti, located
Exposure to natural disasters is a defining feature of the in a slum neighbourhood in the Carrefour district, has
region. The history of urbanization has been strongly worked to open itself up to local residents, despite the de-
affected by earthquakes, hurricanes and tsunamis, as most
bate over its possible relocation. Artists and artisans regu-
cities in the region lie along the coast. These unpredictable
larly participate in urban projects, such as the revitalization
of Place Boyer and the painting of the facades of the Jalousie
natural phenomena have produced a culture of resilience, slum. Many events involving artists, cultural entrepreneurs,
notably in the Caribbean, which is expressed in both tangible public institutions and local NGOs have emerged across the
and intangible heritage. The region’s immense environmental city. The event Artists in Homes, organized by the NGO
resources are severely threatened by aggressive urban Fokal, takes residents on a tour through the historic ‘ginger-
sprawl and changes in crop patterns, which induces bread houses’ of the city, temporarily opening them for artis-
deforestation. Air pollution has reached critical levels due tic performances. The annual Quatre Chemins theatre
to automobile congestion and industrial production. Urban festival offers performances and outdoor workshops. The
waste treatment remains widely insufficient, worsening Nuits Blanches event in Port-au-Prince opens the city to
water pollution. Building more sustainable resource use artists, inviting them to imagine new ‘urban utopias’. To facil-
patterns is therefore becoming critical.
itate the participation of marginalized populations in cultural
activities, certain initiatives have been introduced by both public
and private actors, such as providing free transportation to
A MULTILAYERED URBAN HERITAGE

cultural institutions or events.
WHICH SHAPED LOCAL, CREOLE These culture-based development initiatives could certainly
CULTURES seem small given the scale of the challenges in Port-au-
Prince. Given the size and socio-economic profile of Haiti,
A diversity of climatic and geographic settings has the country’s literary and artistic creation is particularly sig-
produced a great variety of urban landscapes, with the nificant. Culture represents a vital means to building a more
cities of the Atlantic coast found on gentle plains and just society and making the city accessible for all.
plateaus and their Pacific counterparts sitting atop steep Prepared by UNESCO
mountains. Thus, cities of the region are marked by robust
116
STUdY AREA
Guanajuato (Mexico)
© rey perezoso/Flickr.com*
geographic identities and relationships with the natural through democratization processes. during the twentieth
environment. These landscapes often contribute to urban century, modernization and contact with North America
cultures, as seen in Rio de Janeiro’s Copacabana Bay, which and Europe produced masterpieces of modern
fostered a culture of outdoor living. Urban and architecture. A few new cities were erected during the
architectural typologies are also strongly linked with the nineteenth and twentieth centuries – such as La Plata
environment; in the Caribbean, traditional settlements (Argentina) and Brasilia (Brazil) – but these cases remain
are characterized by low density and light structures exceptional, as most urbanization occurred in existing
placed in large open spaces. Seismic conditions also cities. In some countries, later immigration waves resulted
generate singular architectural expressions, as seen in in important buildings during the Republican era (as seen
Chile and Peru. in Argentina) or outstanding elements of modern
architecture (as seen in Brazil and Chile). Some Caribbean
The history of colonization has resulted in distinct countries, notably Cuba, also contain masterpieces of
architectural and urban features. Although pre-Columbian modern and soviet architecture.
urban patterns are still visible in cities such as Mexico City
(Mexico) and Cusco (Peru), most cities have colonial urban The wide variety of intangible cultural practices in the
foundations, which structured their subsequent expansion; region reflects unique interactions between various
cities colonized by Spain are often characterized by a cultural influences, shaped by successive waves of
regular square or rectangular grid, while those colonized settlements and migration. The region as a whole can be
by the Portuguese are home to a more organic layout. In seen as a cultural laboratory, where different cultural
Caribbean countries, architectural heritage mainly consists models have interacted and generated new urban
of buildings for governmental, religious, commercial or environments. The resulting historic urban landscapes
agricultural activities, as well as defence systems and are, therefore, very complex and varied. Local populations
residential districts; ancient industrial structures are less consider intangible heritage – including music, dance,
common. Variations of Spanish urban models, variously crafts, feasts, religious ceremonies and carnivals – to be
introduced by English, dutch and French rulers, produced vital to their identities, particularly as built heritage is
original architectural and urban forms. sometimes seen as ‘imported’ from the outside, although
this heritage is continuously revisited and reinterpreted.
In most colonial patterns, the urban fabric was dominated
by a central plaza, surrounded by institutional and religious Approaches to urban heritage have gradually evolved in
buildings, as well as residential developments for the elite. the region. Throughout the nineteenth century, newly
The plaza served as the main symbolic centre and hub of emerged nation states showed little interest in
activity. Less privileged functions and populations were architectural and urban heritage, and were more willing
located farther away, according to principles of social to erase their colonial past to promote modernization. At
division. Although these plazas have been modified and the time, the cultural elites were also more oriented
modernized, their main outlines remain visible today. Some towards European concepts of modernity. As urban
colonial architectural types have been reinterpreted by growth and industrialization during the mid-century
local cultures and adapted to local climates to produce increased pressure on urban heritage, the state sought to
original architectural forms, such as Haiti’s ‘gingerbread halt the damage, especially on religious heritage, and
houses’. A unique version of Baroque architecture, reallocate protected buildings to public use. Interest in
stemming from the European style and nourished by the heritage therefore strengthened by the end of the
imagination of local artisans, also flourishes in the region. nineteenth century and flourished in the early twentieth,
becoming a key topic in the 1923 and 1937 Pan-American
during the nineteenth century, urban heritage was conferences.
gradually recognized as national identities emerged
117
Practices of urban conservation developed throughout involvement of municipal authorities in most countries,
the twentieth century, under the influence of communities especially federalist countries. In the Caribbean, central
of experts and pioneer countries such as Mexico, Brazil governments still play a strong role in urban governance.
and Cuba. Although conservation was initially focused on
monuments, a concern for the protection of wider urban CASE STUDY 48 PERU
areas has recently arisen. The scope of heritage activities

BOLIVIA
(PLURINATIONAL
STATE
Santiago (Chile)
has also expanded to encompass intangible heritage
The local community leads heritage
aspects, including construction skills, cultural practices
conservation
and lifestyles associated with specific urban environments.
CHILE
These more integrated approaches to urban conservation Surrounded by the Andes mountain range and ARGENTINA
have been underpinned by several conservation success the numerous hills that envelop the valley on
stories, notably in Cartagena de Indias (Colombia). which Santiago de Chile is raised, local resi-
dents in several of the Chilean capital’s neighbourhoods
Heritage has slowly emerged as a significant political have fully capitalized on their participative power by leading
rallying point, although its impact on urban development innovative creative activities that have endowed their com-
is still unevenly recognized. In some countries, heritage munity members with a sense of belonging, reinvigorated
protection has reached a constitutional status. The the city’s cultural life and strengthened heritage protection.
concept of heritage as a source of social cohesion and
innovation in construction and planning is gaining ground
The residents of the Yungay neighbourhood, for instance,
joined together to establish the Fermín Vivaceta School of
among professionals and decision-makers. However, many Crafts, which places intangible heritage at the heart of its
still consider heritage protection to be detrimental to efforts to strengthen community identity, safeguard cultural
commercial and urban development, while its connection heritage and foster urban regeneration.
with quality of life remains underestimated. The economic
impact of tourism, however, is more recognized. In cities Similarly, the smaller neighbourhood of Matta Viel collectively
such as Rio de Janeiro (Brazil), Cartagena de Indias worked towards achieving enhanced protection for the Matta
(Colombia), Cusco (Peru) and Mexico City (Mexico), the Sur district, located in the southern border of Santiago.
importance of tourism has contributed to a consensus on
the economic value of urban heritage. The presence of civil society in heritage preservation has
been gradually increasing in the last decades with cultural
However, despite this growing awareness, urban heritage
heritage becoming a central part of the lives of many of the
capital’s citizens. An example of this growing community
is still threatened. Although most historic neighbourhoods spirit in the face of cultural and urban development is the
still have a central function, uncontrolled urban development Las Flores neighbourhood in Providencia, which stood up
jeopardizes their conservation. Some show clear signs of against the proposed modifications to the city’s Master Plan
decay, while others are commodified for tourist activities. that would encourage high-rise buildings and overpriced
Cultural tourism has sometimes resulted in further land use, as well as Bellavista, home to the late poet Pablo
deterioration or in the exclusion of local populations and a Neruda, which has been the focus of a strike to prevent the
loss of authenticity through over-branding. In many cities, deterioration of the area in the hands of uncontrolled
gentrification processes in central areas have resulted in the tourism.
eviction of low-income populations into informal Source: Pontifical Catholic University of Chile, report for Study Area 8
settlements. Property speculation and rising land values
have also been a major threat, particularly in the Caribbean,
where property demand by tourists and retired foreigners Most countries have developed a comprehensive legal
is substantial (see also Case Study 88). framework on heritage protection. Major laws were put in
place during the first four decades of the twentieth century,
initially for threatened pre-Columbian heritage and
DIVERSE AND FRAGMENTED eventually for colonial heritage as well. Little major
GOVERNANCE FRAMEWORKS improvement occurred between 1945 and 1967 due to
political unrest. In 1967, the Quito Charter reinterpreted
The region is characterized by a great variety of governance the Venice Charter in the regional context, calling for
systems, with unitary, regional and federal systems all integrated approaches to heritage protection in urban
coexisting. The Caribbean is a mix of independent countries contexts. Several countries updated their urban
and others which are under the influence of former colonial conservation and regeneration laws accordingly. Heritage
powers or integrated into their overseas territories. protection was progressively included in the constitutions
Therefore, legislative and institutional frameworks differ of several countries. This institutional framework was
greatly, variously influenced by the English, dutch, French further consolidated through the creation of ministries of
or Spanish systems. Cuba and its socialist model is a specific Culture, which gradually incorporated urban heritage
case in and of itself. This diversity strongly determines within their mandate. Although risk preparedness is
urban governance and hampers regional integration. A loss considered a top policy priority, especially in the Caribbean,
of faith in the interventionist state model led to the stronger risk management frameworks are not fully operational.
118
STUdY AREA
Caracas (Bolivian Republic of Venezuela)

© Julio César Mesa /Flickr.com*
governments and local powers are a real obstacle to

efficient local governance. However, several programmes
C A S E ST U DY 49 PARAGUAY
BRAZ
have successfully provided a platform for extended

Buenos Aires (Argentina)
cooperation. The Monumenta programme, a federal
Design as an engine of social URUGUAY
and economic development programme in Brazil, promoted sustainable preservation
CHILE
ARGENTINA
through incentives for municipalities and the private
In Buenos Aires, creativity has served as
a driver of economic and social devel- sector. The 2011-2016 Integral Management Plan for the
opment. The city has established a pros- historic centre of Mexico City serves as a basis for
perous creative sector, which grew by 89.1% between 2004 and cooperation between stakeholders (local and national,
2012, and today represents 8.6 % of its GDP and 9.1 % of its private and public), providing tools for conflict resolution.
workforce, employing almost 150,000 people. By creating
public-private partnerships based on the latest technology and Urban conservation and regeneration is still mainly funded
know-how, Buenos Aires has been able to harness the energy by public authorities and international actors. In Latin
of its design sector for the development of pioneering initiatives America, national governments are the main funding
at the local, regional and international levels, in fields ranging source for the protection of cultural heritage, followed by
from fashion and architecture to industrial, interior, graphic and regional and local governments. In the Caribbean, a larger
part of this funding is provided by official development
urban design.
In 2001, the Metropolitan Design Centre was created with the agencies and NGOs. In the 1990s, the World Bank
objective of invigorating the productive framework and the qual- engaged in the revitalization of urban heritage areas, with
ity of life of the citizens of Buenos Aires through the effective a focus on poverty alleviation and cultural tourism. The
management of the different areas of design. Reporting to the Inter-American development Bank (IdB) then became
Ministry of Modernization, Innovation and Technology of the the main funding partner for urban conservation and
City of Buenos Aires, the Metropolitan Design Centre is the main regeneration efforts and promoted innovative
public promoter of the economic and cultural importance of de- methodologies to involve the private sector and civil
sign. Moreover, the Centre hosts an annual International Festival society organizations. From 1999 to 2009, the IdB
of Design, an event which brings together professionals, invested US$630 million in the central areas of 46 cities
students and the public at large to showcase sustainable and and US$100 million in 20 cultural tourism projects
(Cuenin, 2009). IdB-funded programmes include the
socially inclusive design.
In parallel, the Ministry of Modernization, Innovation and Tech- Cultural development Programme (which funds
nology of the Buenos Aires City Government has implemented community work and training through NGOs), the
a policy of Economic Districts, centralizing and fostering the Monumenta programme in Brazil (which supports 26
growth of key industries in specific districts. By increasing the historic cities) and the Emergent Sustainable Cities
geographical proximity of businesses and enhancing economic Initiative (which develops participative urban strategies
incentives, the project addresses inequalities in infrastructure and actions plans to improve the quality of life in 55 cities).
and transport connectivity, while fostering the recovery of public
spaces. The policy was implemented in four underdeveloped However, innovative public-private partnerships and
neighbourhoods, each of which focused on a particular sector – funding mechanisms have emerged with a view to restore
technology, audiovisual, arts and design. and transform urban heritage. A consensus is growing on
Source: Pontifical Catholic University of Chile, report for Study Area 8 the necessity of involving the private sector in urban
regeneration efforts, notably property owners and
property investors, so as to relieve pressure on public
However, urban governance remains hampered by an finances. Innovative mechanisms for the restoration of
unclear articulation between different institutions and urban centres were developed in Caracas (Bolivian
regulations. The legal framework has managed to prevent Republic of Venezuela) and Quito (Ecuador) through loans
destruction, but has been less effective in promoting and financial agreements with international institutions
urban conservation and regeneration. Legislative and such as the IdB. Private stakeholders have also shown an
administrative instruments related to urban development, increasing interest in cultural projects, provided a
regeneration and conservation often overlap and the favourable legal framework is in place. Examples include
articulation between national and local legislation is the NAVE building in Santiago (Chile), which was restored
unclear. Although decentralized administration is and transformed into a performing arts centre by a private
recognized, recurrent tensions between state or central investor, who benefited from the national Cultural
119
donations Law, whereby the state and private actors historic centres, although severely damaged in some cities,
participate equally in the financing of cultural projects, still played a vital economic and social function. These
with the support of subsidies. Commercial investors are operations rejuvenated the concepts of urban
also increasingly investing in urban heritage; in Buenos conservation and regeneration. Beyond the physical
Aires (Argentina), the Galerias Pacifico, an outstanding restoration of the built environment, they managed to
historical monument built in 1889, was reopened in 1991 create new methodologies related to participatory
after decades of vacancy thanks to private investment, approaches, job creation strategies, funding mechanisms
which transformed the site into a complex hosting and legal instruments.
commercial and cultural activities. In Quito (Ecuador), the
Historic Centre Corporation, co-created by the city and
CASE STUDY 50 ECUADOR
COLOMBIA
Capicara Foundation as part of the revitalization of the Lima (Peru)

historic centre, is another innovative example of a public- Echoes of the Andes: music
private model, which is now spreading to Mexico and in migrant communities
beyond.
BRAZIL
Between the 1940 and 2007 censuses, PERU
while the total population of Peru

UNESCO Culture Conventions are widely implemented quadrupled, that of Lima grew ten-
across the region, particularly in Latin America. Almost fold, largely due to migration from the Peruvian Andes and
every country has ratified the 1972 Convention other rural areas. In 2007, no less than one-third of Lima
Concerning the Protection of the World Cultural and residents were internal migrants, without counting the largeC
Natural Heritage. The principles of the Convention have number of city residents whose parents or grandparents
been integrated into the constitutions of many countries were born in rural areas and who still maintained close ties
– notably Cuba and Mexico – as well as national laws. The to their ancestral places.
region has a significant number of listed properties, with
some countries being particularly well-represented; Over more than a century, highland migrants to Lima formed
Mexico is home to 34 properties, while Brazil is home to mutual assistance associations that addressed the practical
20.1 The 2003 Convention for the Safeguarding of the
needs of migrants with credit schemes and emergency
funds, burial plots and childcare. But they also organized
Intangible Cultural Heritage has been ratified by most sports activities for club members – especially football – and
countries of the region, which have proven to be very increasingly took on cultural activities, including musical
active in the registration, safeguarding and advocacy performances.
process. The objectives of the 2005 Convention on the
Protection and Promotion of the diversity of Cultural Between 1938 and the early 1970s, some thirty coliseos
Expressions – notably the development of cooperation (open-air or tented coliseums) provided entertainment to the
and financial support, the promotion of partnerships and growing number of migrant families. An afternoon and
the inclusion of culture into sustainable development evening’s programme would include some headliners as
efforts – are being taken into account in national well as the various highland associations, each performing
frameworks, notably in Brazil through the National Culture music typical of its home region. This new staged perfor-
Plan 2011-2020 (which includes the mapping of cultural
mance context – together with radio and recordings –
expressions and values) and the Plural Brazil programme
favoured shorter and more compact musical pieces than
would have been encountered in a community-based event
(which seeks to integrate marginalized groups into cultural in a highland village. The emergent genre of huayno syn-
policies). thesized indigenous and mestizo music with the conventions
of popular entertainment: short songs, humorous skits and
stage shows, as well as slick costumes that evoked a
URBAN REGENERATION PRACTICES: romantic notion of indigeneity.
TOWARDS MORE INTEGRATED AND
INCLUSIVE MODELS By the late 1970s, associations took on the work of orga-
nizing their own musical events, in parks, schoolyards,
Urban regeneration projects flourished across the region rented halls or their own clubhouses. Such events typically
from the early 1990s, after the so-called ‘lost decade’. The
include a contest where different groups compete in music
emergence of civil society movements calling for improved
and dance. Groups continue to provide music for participa-
tory dancing into the evening – more like what might take
quality of life and equity, together with the economic place in a highland town or village. It is important to under-
downturn of the 1980s, which slowed down urban growth, stand, however, that this is by no means simply Andean
brought about a favourable environment for reflection on music transplanted to a new urban context. Huaynos are
how urban development could be made more inclusive. now joined by chicha, technocumbia and other hybridized
Several ambitious programmes emerged in Mexico City genres as the music of Andean migrants in Lima continues
(Mexico), Rio de Janeiro (Brazil), Havana (Cuba) and Quito to evolve.
(Ecuador) among others to restore and revitalize historic Prepared by Frank Proschan
areas. The process was also facilitated by the fact that
1
120
STUdY AREA
Parque Biblioteca Tomás Carrasquilla,

Medellín (Colombia)
©Omar Uran/Flickr.com*
However, these policies have tended to induce (Mexico), the urban plan seeks to recover numerous public
gentrification and a loss of cultural values. The increased spaces, with a view to preserve the street grid as a piece of
cost of living in historic areas has become a major issue urban heritage.
and has led to a significant decrease in their populations; PERSPECTIVE 11
for example, Quito’s population decreased by 31% in the
CULTURE FOR A MORE SUSTAINABLE CITY
early 1990s (delgadillo, 2008). Some of these historic Government of Mexico City (Mexico)
districts have been reduced to institutional or touristic
areas – to the detriment of their residential or commercial The relationship between culture and sustainable development and the quality
functions – and have gradually lost their central economic sustainable development is intrinsic. In of life and well-being of our people.
and cultural role, as other areas emerge as new city an increasingly urban world, initiatives
centres. Tourism-based regeneration, as witnessed in
taken by cities to promote the spread of, Some of the most important steps for
participation in and access to culture are strengthening the fabric of society involve
Valparaiso (Chile), has also been criticized for contributing fundamental to strengthening social co- rescuing, designing and renovating public
to a ‘neocolonial’ social reality, resulting in the hesion and furthering educational, social, spaces. This administration has invested
displacement of longtime residents and a subsequent loss economic and environmental activities considerably in the revitalization of green
of the social and neighbourhood fabric. in major cities around the world. spaces in the heart of Mexico City: ‘Bosque
de Chapultepec’, or Chapultepec Woods.
In recent years, the scope and methodology of urban Mexico City is a thousand-year-old capital The Master Plan for the second section
regeneration has expanded. Better integrated projects
where diverse cultures converge and ex- of Chapultepec Woods will restore its
press themselves – a dynamic, inclusive ecological balance, many uses, beauty
have been initiated, with a clearer focus on housing and and cosmopolitan metropolis. Mexico City and historical value.
resource mobilization for low-income populations. Various has the most tangible and intangible
strategies have been experimented with to stimulate the cultural heritage in the country, with more To promote a culture of sustainability
regeneration of large urban areas. Some interventions than 7,000 historical monuments, 153 among residents of Mexico City, we
have put a focus on mobility, such as the development of museums and 23 important natural sites. launched an ambitious project to convert
a pedestrian network in Cordoba (Argentina) and the unused urban spaces and abandoned
integrated transportation network in Curitiba (Brazil).
Mexico City owes its rich and unique areas into ‘Pocket Parks’ that inspire res-
culture to the impressive heritage of its in- idents to appreciate aesthetics and enjoy
Ambitious national programmes for the regeneration of digenous cultures and peoples. More than their free time. Since 2013, we have
historic towns were initiated in several countries; in Brazil, 1 million indigenous people coexist in this transformed 25 spaces into Pocket Parks,
the federal government launched the Growth Acceleration city, where 57 of the nation’s 62 indigenous with the end goal of creating 150 parks
programme in 2007 to stimulate urban regeneration in peoples converge. Nowadays, indigenous in total.
44 historic cities through the upgrading of urban peoples are maintaining their traditions
infrastructure.
and customs and aim to preserve and As city leaders, mayors around the world
protect natural sites, where many economic must take on the responsibility and com-
and ceremonial activities take place. mitment to include culture and sustain-
The renovation of public spaces has become a key compo- ability in public policies on education,
nent of urban regeneration strategies. The renovation of Convinced that culture is the fourth pillar economic development, environmental
central plazas has often sparked the wider regeneration of of sustainable development, we are taking preservation and social development. At
surrounding areas. These plazas are now becoming strate- concrete action in Mexico City to enhance the same time, we have an obligation to
gic areas to host cultural events, contributing to the it as a multicultural space open to the see that indigenous communities and
emergence of a new urban culture. Beyond parks and
world, a place of equality, inclusion, cre- intercultural dialogue endure. This is
ativity and diversity, where the imple- the only way we will be able to achieve
plazas, a new generation of public spaces associated with mentation is encouraged of policies on environmental sustainability and human
infrastructure has emerged. Interventions include quality participation in culture to benefit citizenship, development in our cities.
paving, garden maintenance, facade improvement and illu-
mination. In Rosario (Argentina), the recovery of the
riverfront was a catalyst for urban regeneration. In Buenos Urban regeneration involves a growing variety of
Aires (Argentina), the Microcentro Plan aims to recover communities and private partners. In its early days, urban
the historic value of urban spaces in the central district regeneration was mostly funded and carried out by public
through street paving, the creation of pedestrian paths authorities, with very limited input from the private sector
waste management and façade illumination. In Mexico City or local communities. The financial and operational
121
involvement of private partners, including corporations and More integrated visions of urban development should be
commercial actors, has gradually increased, in both promoted. In this particular regional context, where social
Latin America and the Caribbean. In Suriname, for and spatial inequalities are exacerbated, culture should be
example, a private conservation company plans to acquire considered as a means of encouraging more equitable
50 dilapidated historic buildings in that country’s inner societies and inclusive governance. This requires the wider
cities over the next 10 years. Legal environments are acceptance of community participation on the part of local
progressively being improved to support private and national authorities, as well as improved access to
participation, particularly through the use of tax deductions information on urban heritage issues for the public. Creative
and public-private partnerships. strategies for the restoration and adaptation of historic
buildings should also be elaborated. The restoration of the
Civil society is taking an increasing role in urban conser- Palacio Pereira in Santiago (Chile), the Botero Museum in
vation and regeneration in Latin America and, to a lesser Montevideo (Uruguay) and the Pinacoteca in Sao Paulo
extent, in the Caribbean. Previously relegated to the (Brazil) are among the iconic examples of reinvestment in
realm of experts, urban heritage issues have been historic buildings and their adaptation to contemporary
gradually appropriated by civil society, in parallel with uses. The relationship between urban heritage and quality
democratization processes and increased access to of life should be more broadly understood and promoted.
telecommunications systems. Residents are increasingly The impact of urban conservation on economic
aware of the connection between quality of life and urban development should also be more systematically explored
heritage and have protested against aggressive devel- and quantified; this assessment is particularly essential to
opment projects. A wide network of NGOs has emerged build consensus in view of the mounting speculative
in favour of improved urban environments and respect pressures on historic areas.
for cultural and human rights. Civil society organizations
are now seeking new forms of financing, including the use CASE STUDY 51
of micro-financing. Upgrading housing in historical areas:
innovative examples from across the region
Some civil organizations have achieved considerable levels
of empowerment, sometimes challenging traditional To tackle the loss of residents and the degradation of living
institutions. In Lima (Peru), the citizen-based urban conditions in historic areas, various strategies have been at-
observatory ‘How are we doing Lima’ promotes the reuse tempted in different cities as part of overall urban conser-
of abandoned spaces by pedestrians through the ‘Use your vation and regeneration programmes, each of which
street’ campaign. In Mexico City (Mexico), as part of employed specific financial or restoration mechanisms.
neighbourhood recovery programmes, communities
participate in decision-making related to funding
In Mexico City (Mexico), potential buildings were surveyed
and design criteria were established for restoring these sites
mechanisms for housing upgrading or public space into housing. Specific financial instruments were imple-
regeneration. In Buenos Aires (Argentina), the NGO ‘Stop mented to support regeneration.
demolishing’ mobilized civil society to prevent the
demolition of urban heritage through public protests. In Quito (Ecuador), residential buildings were restored with
Heritage defence movements, such as Youth for Heritage a view to keep residents in their original neighbourhoods.
in Chile or the defenders of Cultural heritage in Peru, have Direct financial support was provided to owners through
also become a channel for communities to participate in public subsidies.
social and political networks (see Case Study 70).
In Cartagena de India (Colombia), the conservation plan
managed to regulate private investment for the restoration of
UPGRADING THE ROLE OF CULTURE IN facades and the preservation of the city’s historic character.
SUSTAINABLE URBAN DEVELOPMENT: Source: Pontifical Catholic University of Chile, report for Study Area 8
NEW PERSPECTIVES
A broader reflection on the scope and concepts of urban
despite the evolution of urban conservation and heritage is needed. The concept of historic urban
regeneration practices, they are still perceived as being landscapes, if further utilized, would encompass the
disconnected from wider urban development issues. Many diversity of the regions’ urban heritage, particularly the
decision-makers still tend to consider urban conservation intangible and vernacular heritage, as well as the specific
as an obstacle to urban development and a deterrent to link between cities, their natural setting and their
economic expansion, with the exception of the tourism- environment, contributing to a better understanding of
based economy. The institutional fragmentation of public the cultural complexity resulting from successive historic
and private stakeholders, particularly between urban layers. Given the large-scale development of informal
planning and heritage preservation institutions; the settlements and their importance for the creation of urban
discrepancy between urban regulations and cultural culture (as seen in Caribbean music, for example) more
preservation norms; and the lack of heritage awareness attention should also be paid to temporary structures or
among urban professionals tend to emphasize this gap. substandard architecture and the intangible practices
122
STUdY AREA
Sucre (Plurinational State of Bolivia)

© Orlando Contreras López/Flickr.com*
embedded in these settlements. The relationship between urban conservation and regeneration projects, such as the
tangible and intangible heritage should also be more emergency programme for cultural heritage in Quito
thoroughly explored, notably the link between cultural (Ecuador), which trained 8,000 people for large-scale
practices and the urban spaces they are performed in. This heritage inventorying, while also contributing to the crucial
broader vision would help address the discrepancy regeneration of the historic centre of Antigua (Guatemala).
between colonial and vernacular heritage, and increase However, the available academic training remains
community and decision-maker engagement in urban insufficient to address contemporary needs.
conservation and regeneration efforts.
PERSPECTIVE 12
Addressing the issue of housing in historic areas remains A CENTRE OF GASTRONOMY CONTINUES TO INNOVATE
César Souza Junior, Mayor, Florianópolis (Brazil)
fundamental. Urban regeneration efforts in the region Elizenia Prado Becker, Municipal Secretary of Tourism, Florianópolis (Brazil)
have mostly targeted public buildings and spaces recov-
ered for cultural or commercial purposes; interventions
in residential areas have been limited. As a result, many Florianópolis has carried out several sig- To further advance innovation, the Centre
historic centres have lost residents. In some countries, nificant actions as a UNESCO Creative for Food that is currently under construc-
historic neighbourhoods are regarded as a transitional
City of Gastronomy. We would like to tion will be an important centre of learning
housing location for migrants before they move to the
highlight three topics that we consider and knowledge management on gas-
unique for innovation and future devel- tronomy in Florianópolis, in Brazil and
periphery. Retaining an adequate number of residents in opment. possibly other partner countries.
these central areas and improving their living conditions
is therefore essential. Innovative adaptive reuse strategies As part of the Santa Catarina State Uni- Another great advantage of Florianópolis
should be devised to upgrade old buildings in line with versity, the Cultural Innovation Centre is the participation of governmental and
security or energy saving standards, as well as to insert has arguably the greatest public impact. non-governmental institutions in the man-
new housing complexes within historic areas without
Activities have integrated gastronomy, agement of the Florianópolis City Pro-
design and craft to enhance regional gramme as a UNESCO Creative City of
disrupting the urban fabric. More flexible protective cuisine through workshops, such as ‘Cul- Gastronomy. Cooperation involves uni-
norms are also needed to meet residents’ needs. Adequate tural Identity in Gastronomy of Santa versities, associations linked to gastronomy,
financial instruments for restoration and regeneration Catarina’ and ‘Design + Food + Craft’ and cultural and business entities, with
need to be proposed, as existing financial mechanisms in July 2015, which brought together each institution contributing the necessary
and incentives have mostly targeted new construction. Brazilian and foreign designers with local human capital, social and technical ex-
artisans to develop a collection of tools pertise. This maintains a living and dynamic
Tourism needs to be culturally informed to support urban
for presenting creative dishes of Santa programme and ensures actions for training
Catarina cuisine. and awareness-raising, notably in the
regeneration. Although the tourism sector is a significant production chain of gastronomy.
source of jobs, its present patterns are not consistent with
sustainable development models, particularly in the
Caribbean. Tourism-based strategies have often distorted
the initial role of historic centres within urban areas and New training programmes on cultural heritage have
contributed to their ‘museumification’. In some areas, mass emerged over the last decade in Latin America, including
tourism has threatened the built environment and several master’s degree programmes on heritage
endangered local traditions and cultural values. In the restoration and management, cultural management and
Caribbean in particular, both tangible and intangible earthen construction. In the Caribbean, some countries,
heritage have often been overtly commodified for tourism such as Cuba, have a tradition of research and educational
purposes. Fake historic environments have even been excellence in the field of conservation. In terms of
created as part of cruise-related tourist activities, often professional training, around 60 esculera taller were
overemphasizing the colonial narrative to meet visitors’ developed in the region, with support from AECId (the
expectations. Sustainable management of tourism-based Spanish bilateral cooperation agency). This innovative
activities therefore remains a key challenge. programme of practical education in crafts and heritage
conservation promotes youth employment, while
Building urban conservation and regeneration capacity is improving urban environments and recuperating lost skills.
also essential. Gaps in human resources are still a major Several NGOs have also created training programmes
constraint across the region. Although a growing number dedicated to urban heritage. Regional capacity-building
of architects are trained in heritage conservation, programmes, such as the Caribbean Capacity Building
especially in Latin America, professional education remains Programme (CCBP) for World Heritage, have also helped
focused on restoration and fails to embrace the wide range to build capacity and expand networking opportunities at
of issues associated with urban regeneration. A generation the regional level. These training efforts should be
of professionals was trained through several milestone intensified and further integrated at the regional level.
123
Casbah of Algiers (Algeria)

© REZA/Webistan*
124
PART II
CULTURE FOR SUSTAINABLE CITIES:
A THEMATIC APPROACH
125
PEOPLE
SECTION A
ENVIRONMENT
SECTION B
POLICIES
SECTION C
126
Building on the power of culture to promote

human and inclusive cities
1 HUMAN-CENTRED CITIES
2 INCLUSIVE CITIES
3 PEACEFUL AND TOLERANT SOCIETIES
4 CREATIVE AND INNOVATIVE CITIES
Improving the quality of the built and natural

environment through culture
5 HUMAN SCALE AND COMPACT CITIES
6 SUSTAINABLE, RESILIENT AND GREEN CITIES
7 INCLUSIVE PUBLIC SPACES
8 SAFEGUARDING URBAN IDENTITIES
Integrating culture in urban policies to foster

sustainable urban development
9 SUSTAINABLE LOCAL DEVELOPMENT
10 ENHANCED RURAL-URBAN LINKAGES
11 IMPROVED URBAN GOVERNANCE
12 FINANCING SUSTAINABLE URBAN DEVELOPMENT
127
128
SECTION A
PEOPLE
Building on
the power of culture
to promote human
and inclusive cities
What is the city but the people?
129
Pashupatinath Temple, Kathmandu (Nepal)
© MoLarjung/Shutterstock.com*
I
n today’s interconnected world, sites, intangible and underwater recognizing cultural diversity as a
the power of culture to transform heritage, museum collections, oral mainspring of sustainable develop-
societies is clear. Its diverse man- traditions and other forms of heritage ment, the 2005 Convention on the
ifestations, from cherished historic – and to support creativity, innovation Protection and Promotion of the
monuments and museums to tradi- and the emergence of dynamic diversity of Cultural expressions was
tional practices and contemporary cultural sectors. established to ensure that artists,
art forms, enrich our everyday lives cultural professionals, practitioners
in countless ways. Heritage consti- dedicated to the conservation of and citizens worldwide can create,
tutes a source of identity and cohesion, cultural and natural heritage of out- produce, disseminate and enjoy a
and creativity contributes to building standing universal value to humanity, broad range of cultural goods, services
open, inclusive and pluralistic societies. the 1972 Convention Concerning the and activities, including their own.
Protection of the World Cultural and UNeSCO therefore views cultural di-
yet more than this, heritage and cre- Natural Heritage (also known as the versity as source of strength, and a
ativity are essential to truly sustain- World Heritage Convention) high- crucial precondition for peaceful so-
able development. UNeSCO believes lights ‘the combined works of nature cieties, as stated in the 2001 UNeSCO
that a people-centred approach, based and man’. Natural heritage also un- Universal declaration on Cultural
on mutual respect and open dialogue derscores the ways in which people diversity: ‘policies for the inclusion
among cultures, can lead to lasting interact with nature, and of the fun- and participation of all citizens are
and inclusive sustainable development. damental need to preserve the balance guarantees of social cohesion, the
Such an approach to development between the two. Similarly, cultural vitality of civil society and peace’.
that places people, their choices and heritage – including that safeguarded
their freedoms at its heart is partic- by the 2001 Convention on the Together, UNeSCO’s Culture
ularly needed in our cities, now home Protection of Underwater Cultural Conventions can contribute to a
to the majority of the world’s popu- Heritage and the 2003 Convention vision of people-centred urban
lation. Since its founding, UNeSCO for the Safeguarding of the Intangible development, one in which natural,
has made people central to its mission. Cultural Heritage – brings people to- tangible, underwater and intangible
established in 1945 in the wake of gether, increasing cooperation among cultural heritage as well as creative
two devastating World Wars, with architects, historians, heritage experts expressions foster diverse, inclusive
the firm conviction that political and and local communities from around and prosperous cities.
economic agreements alone are not the world to strengthen shared his-
sufficient guarantees of lasting peace, tories and identities. as people-centred development
the Organization was created to ‘build denotes the inclusive participation
peace in the minds of men and women’ Other UNeSCO Culture Conventions, of all citizens, it therefore requires
through international cooperation in such as the 1954 Convention for the the freedom of all women, men, boys
education, the sciences and culture. Protection of Cultural Property in and girls to access and contribute to
the event of armed Conflict and the cultural life on a basis of equality. The
ever since, UNeSCO’s people-centred 1970 Convention on the Means of precondition of gender equality for
mission has been reflected in a series Prohibiting and Preventing the Illicit genuine people-centred development
of Culture Conventions adopted be- Import, export and Transfer of was a key message of the 2014
tween 1954 and 2005,1 which provide Ownership of Cultural Property, UNeSCO Global report Gender
a unique global platform for interna- further reinforce this connection Equality: Heritage and Creativity,
tional cooperation and establish a between heritage and people, driven which reiterated that espousing a
holistic cultural governance system by the knowledge that the safeguard- human-rights-based approach in de-
based on human rights and shared ing of cultural heritage from looting velopment efforts implies that culture
values to protect and safeguard the and destruction is essential to the should never be invoked to justify
world’s cultural and natural heritage preservation and transmission of cul- the infringement or limitation of
– including ancient archaeological tural forms, practices and knowledge human rights (UNeSCO, 2014b) as
for future generations. one of the two Global Priorities of
1
See: http://portal.unesco.org/en/ev.php- UNeSCO, gender equality is promot-
UrL_Id=12025&UrL_dO=dO_TOPIC&UrL_SeCT ed across the Organization’s work.
ION=-471.html
130
SECTION A
Yalikavak (Turkey)
© REZA/Webistan*
The following section contains a series

of articles, case studies and perspec-
tives which continue this conversa-
tion, launched under the auspices of
UNeSCO, on the key role of culture
for fostering people-centred cities.
While Minja yang focuses on how
cities might be humanized through
action on the five P’s (People,
Partnership, Prosperity, Peace and
Planet), raj Isar calls for the devel-
opment of inclusive cities by shifting
public policy away from a focus on
multiculturalism to interculturalism.
Similarly, in his piece, Webber Ndoro
highlights cultural heritage as a tool
for fostering peaceful and tolerant
societies, while Charles Landry em-
phasizes the essential role of culture
in the digital city. Case studies from
cities around the world and perspec-
tives from leading mayors, urban plan-
ners, architects, academics and
international organizations focusing
on the role of people complete this
analysis.
131
CHaPTer
1 HUMAN-CENTRED
CITIES
The Arena Opera Festival, Verona (Italy).

© Courtesy Fondazione Arena di Verona*
IN FOCUS
People and their well-being should be at IN THIS CHAPTER

the centre of local development initiatives to Article:
achieve sustainable cities and fulfil human Minja Yang, President, Raymond Lemaire International Centre
aspiration. for Conservation, University of Leuven (Belgium). Humanizing
cities through culture
Improving the liveability of cities depends Perspectives:
on linking culture with transformations in the • Zhang Bing, China Academy of Urban Planning and Design
city’s physical and social infrastructure. (China). People-centred heritage conservation in Beijing
• Janice Perlman, Founder and President, the Mega-Cities
Project (USA). Rio de Janeiro’s revitalized centre and its port:
Increasing awareness of place, identity and but whose culture?
a sense of belonging can be supported through • Andy C. Pratt, Centre for Culture and the Creative Industries,
cultural heritage and activities that promote the City University of London (UK). Co-producing culture and the
cultural diversity of the city’s inhabitants. urban environment
Case studies:
Territorial planning should be an • Luang Prabang (Lao People’s Democratic Republic). Mixed-use
integrated process that promotes connectivity public spaces as common assets
between rural villages and small, medium, and • Kigali (Rwanda). The power of culture for reconciliation
• Baku (Azerbaijan). Recognizing women’s contribution
large cities through culture. to the art of Azeri carpet-making
• Nablus (Palestine). Reconnecting local communities to culture
through adaptive reuse
• Strasbourg (France). Cars or people?
132
1
HUMANIZING CITIES THROUGH CULTURE
C H A P T E R
MINJA YANG
President, Raymond Lemaire International Centre for Conservation, University of Leuven (Belgium)
TWENTY YEARS AGO AT HABITAT II, UNESCO APPEALEd TO ‘HUMANIZE THE CITY’ (UNESCO, 1996). SINCE
THEN, ANOTHER ONE BILLION INHABITANTS ANd CLOSE TO HALF A BILLION MOTORIZEd VEHICLES
HAVE BEEN AddEd TO OUR CITIES (SPERLING ANd GORdON, 2010), PROdUCING AN ESTIMATEd 1.3
BILLION TONNES OF MUNICIPAL SOLId WASTE PER YEAR (WORLd BANK, 2012). OUR CITIES, FAR FROM
HUMAN-CENTRED CITIES
BEING HUMANIZEd, HAVE BECOME INCREASINGLY UNFRIENdLY TO PEOPLE. TO BE SURE, IMPORTANT
ACHIEVEMENTS HAVE SINCE BEEN MAdE, WITH TENS OF MILLIONS OF URBAN dWELLERS LIFTEd FROM
POVERTY THANKS TO RAPId ECONOMIC GROWTH. BUT THE SHEER RATE OF GROWTH IN OUR CITIES
FROM NATURAL GROWTH ANd ACCELERATEd RATES OF MIGRATION HAVE RESULTEd IN FURTHER
dEGRAdATION IN THE QUALITY OF LIFE, PARTICULARLY FOR A QUARTER OF THE WORLd’S URBAN
dWELLERS LIVING IN SLUMS. ONE CAN ONLY REITERATE AT HABITAT III, WITH EVEN GREATER URGENCY,
THE NEEd FOR A NEW PARAdIGM OF URBAN dEVELOPMENT; THAT OF HUMAN-CENTREd CITIES WHERE
PEOPLE ANd THEIR WELL-BEING ARE THE AIM OF dEVELOPMENT, ANd ARE ACTORS IN THIS PROCESS
BY HARNESSING CULTURE, ‘…THE SET OF dISTINCTIVE SPIRITUAL, MATERIAL, INTELLECTUAL ANd
EMOTIONAL FEATURES OF SOCIETY OR A SOCIAL GROUP, …THAT ENCOMPASSES … ART ANd LITERATURE,
LIFESTYLES, WAYS OF LIVING TOGETHER, VALUE
SYSTEMS, TRAdITIONS ANd BELIEFS’ (UNESCO, 2001). The freedom to make and remake ourselves and our
cities is, I want to argue, one of the most precious yet
C
most neglected of our human rights.
ulture, defined as such, can serve as a tool to David Harvey, professor of anthropology and geography
promote understanding and tolerance among people
to enable the ‘living together’ of the increasingly
multicultural inhabitants of today’s cities. Culture is also human-centred cities, the paths being as different as the
part of the objective for human-centred cities, to become varied situations of cities.
places of civility, creativity and the fulfilment of human
aspirations. Of course, the liveability of a city depends on Where and how do we start when today’s cities, in the
its capacity to best meet the citizens’ basic needs Global North and South1 alike, are faced with
supported by physical and social infrastructure, but it can innumerable problems both of global and local origin? The
also be gauged in terms of the degree of happiness urban magnitude of unemployment, spatial and social inequity,
life can bring to its inhabitants. In this regard, before the global impact of atmospheric pollution emitted from
discussing the paths towards humanizing our cities, it industrial hubs, as well as locally-produced pollution
should be stated at the outset that human-centred cities ranging from solid waste to noise, the rapid rate of
could be realized in a sustainable manner only if placed migration within countries and across borders, refugees
within the context of an inclusive, human-centred global and displaced persons fleeing armed conflicts, threats of
economy. However, liveability can be improved towards terror attacks across the globe, and urban violence of
various forms, are some of the most obvious ills that our
cities face today, albeit in different degrees. Whatever the
degree, the massive jolt given to our collective conscious
CHINA
C A S E ST U DY 52
by the global slowdown since the financial crisis of 2008,

M
Luang Prabang (Lao People’s Democratic Republic) LAO PEOPLE’S
VIET NAM
Mixed-use public spaces as DEMOCRATIC

REPUBLIC has increased awareness of the dangers of a purely
common assets THAILAND growth-focused speculative economy based on low-cost,
low-wage production under the logic of economy of scale
In Lao People’s Democratic Republic, the CAMBODIA
that has accentuated ‘social dumping’, undermining hard-
ancient capital city of Luang Prabang, inscribed on the World won social welfare rights where they exist and slowing
Heritage List in 1995 for its unique urban pattern and the progress in labour rights elsewhere.
strong nature-culture link that permeates throughout the
city, has numerous convivial public spaces, each with mul- Cities of the North have been coping with the survival
tiple functions. A large public space rehabilitated as a market needs of their inhabitants mainly through public funds for
social welfare and investments in urban infrastructure.
place for ethnic minorities serves as a delivery point early
However, unable to continue their deficit spending for
in the morning for trucks to unload goods for shops in the
historic centre, later an open-air fresh food market for locals,
followed by a craft market for visitors. For one week in De- much longer, they are now scrambling for change on all
cember, it is the main venue for the Luang Prabang Film Fes-
tival for South-East Asian cinema. Its people-friendly, urban 1
For the purposes of this article, the Global South is understood to
pattern is now being replicated, on a much larger scale, in include all countries of Africa and Asia, excluding Japan, Republic of
the city’s new extension area through the World Heritage Korea and Singapore, all countries of Latin America and Central America,
and Mexico, the Pacific Islands, the Caribbean, and the Arab world. The
management plan. Global North refers to Japan, Republic of Korea and Singapore (in Asia),
Source: Minja Yang, Humanizing cities through culture all countries of Western Europe and North America, and Australia and
New Zealand.
133
PEOPLE Building on the power of culture to promote human and inclusive cities
fronts - through reforms in tax systems, electoral Agenda for Sustainable development: People, Planet,
processes, education, labour laws, justice, etc. - with long- Prosperity, Peace and Partnership (United Nations,
term results yet to come and banking on the digital age of 2015), serving as a guide to develop a new paradigm
the one-click economy to satisfy people for knowledge adapted to the specificity of each country.
but also for goods flown across oceans with a heavy
carbon footprint. In the Global South, including many
emerging economies, relief has come primarily from CULTURAL DIVERSITY, INFRASTRUCTURE
within one’s own cultural communities, demonstrating the AND BEHAVIOURAL CHANGE
functioning, yet again, of the notion of ‘shared poverty’.
The cultural diversity of our cities with its inherent Given the variables between cities, there is no one-size-
community solidarity has, therefore, offered the safety fits-all model in the making of human-centred cities, but
net that governments have not been able to adequately one thing is certain: the need to harness the culture of
provide. people and intercultural understanding to diffuse
tensions in our cities.
PERSPECTIVE 13
PEOPLE-CENTRED HERITAGE CONSERVATION IN BEIJING One of the greatest challenges in the making of human-
Zhang Bing China Academy of Urban Planning and Design (China)
centred cities is to enable cultural diversity as an asset
The past three decades have witnessed The government, cultural institutions and rather than a divisive force, rendered more complex by
a people-centred concept of heritage in local community have all been involved the fact that each cultural community is further divided
conservation practices in China. The goals in regenerating the historic area. Living by economic groups, social class and age. Second- and
of heritage conservation have gradually conditions, infrastructures and public ser- third-generation immigrant communities who have
shifted from individually protecting mon- vices have not only improved in the adopted pluricultural values may not have the same
demands on the city as their elders do. divergent
uments and cultural relics to engaging Yangmeizhu Hutong but also the sur-
in overall social progress and human de- rounding area.
velopment. interests must be addressed in the process of enhancing
In order to realize people-centred heritage the city’s liveability, so that intra-ethnic concerns are put
One of the important experiences of mak- conservation and sustainable development on an equal footing with inter-ethnic relations in the quest
ing cultural heritage conservation a driving goals, enhancing the infrastructure and to improve our cities (see also Chapter 2).
force for regional sustainable development public services in the historic centre has
is to inherit and maintain the social net- been a fundamental aim. Since 2006, Cultural diversity can be protected and promoted only if
human rights and fundamental freedoms, such as
works of historic areas. During the recent the Beijing Municipal Government has
conservation project ‘Yangmeizhu Hutong invested about RMB 18 billion (US$2.75
Area’ in Beijing, for instance, more than billion) to upgrade the environmental freedom of expression, information and communication,
70% of local residents continued to live assets of the historic centre through as well as the ability of individuals to choose cultural
in the area, thus protecting and main- restoring infrastructure and the courtyards, expressions, are guaranteed.2
taining the social networks of the local and safeguarding cultural relics and in-
community. As a result of the efforts, the tangible heritage. Plans to demolish the The role of artists in defending freedom of expression to
conservation of the Yangmeizhu hutongs
promote peace and justice is advocated in many
hutongs have since been abandoned,
international and national policy documents.3 In practice,
(lanes) has become a popular model of and projects such as the ‘Change from
heritage conservation in China and for Coal to Electricity’ have been implemented
initiating new forms of urban regeneration to promote cleaner energy for cooking artists are often silenced by threats of arrest, having their
in heritage conservation, community self- and heating. works banned, denied access to public funds and
organization and culture-led regeneration. opportunities, and being intimidated by political and
religious forces (Isar, 2013), thus the need for greater
international solidarity among artists.
HAPPINESS AS A FUNDAMENTAL HUMAN Cultural activities in public spaces give identity to cities
GOAL and encourage positive interactions between citizens.
There are numerous instances around the world where
Paradigm shifts are important to stimulate change, cultural diversity is celebrated through the arts in public
notably in values. People’s happiness has been used as an spaces and festivals as part of city branding or urban
indicator for development, such as the Gross National regeneration schemes. While they are indeed very
Happiness (GNH) as a comprehensive human-centred important in generating interactions among different
framework for development in Bhutan. While previously groups of people and creating jobs, they do not in
mocked as the idealism of the tiny Himalayan nation, it themselves improve urban liveability unless associated
became mainstreamed with the Stiglitz-Sen-Fitoussi with targeted action for behavioural change and
Commission report (Stiglitz et al., 2009) and the transformation of the city’s physical and social
subsequent United Nations General Assembly resolution infrastructure.
65/309 ‘Happiness: towards a holistic approach to
development’ (United Nations, 2011), which noted that 2
See: Convention on the Protection and Promotion of the diversity of
‘the pursuit of happiness is a fundamental human goal’. Cultural Expressions , Art 2 (UNESCO, 2005).
This spirit is clearly reflected in the ‘five Ps’ of the 2030 3
See: Recommendation concerning the Status of the Artist (UNESCO,
1980).
134
C H A P T E R
Addis Ababa (Ethiopia).
© Dereje/Shutterstock.com*
C A S E ST U DY 53 UGANDA
PERSPECTIVE 14
Kigali (Rwanda) KENY RIO DE JANEIRO’S REVITALIZED CENTRE AND ITS PORT:
RWANDA
The power of culture for BUT WHOSE CULTURE?
Janice Perlman Founder and President, the Mega-Cities Project (United States of America)
BURUNDI
UNITED REPUBLIC
reconciliation OF TANZANIA
Rio de Janeiro (Brazil) has gone through houses and made visible as informal ex-
In Kigali (Rwanda) the city’s diverse communities have clearly several reinventions and reforms in its hibits, which have become part of the
expressed an effort to reconnect through culture by engaging long history. In recent times, the creation Circuit of African Heritage in the port area.
in the variety of music and art festivals hosted in the city. of the ‘Cultural Corridor’ in the 1980s
was followed by the transformation of Rio’s first favela, the ‘Morro de Providencia’
The Ubumuntu (Being Human) Arts Festival takes place the city centre from derelict to destination. that dates back to 1897, is also within
in Kigali annually, following the last week of the 100 days’ With Rio’s selection as host of the 2016 the port area. Along with several other
commemoration of the 1994 genocide. It is held at the out- Olympics, the renovation of the port area informal communities, it is a key part of
door amphitheatre of the Kigali Genocide Memorial Centre got a huge boost in financing and symbolic the tangible and intangible culture. In
and brings together artists from all over the world. Festival importance, showcasing Rio as a city of 2010, about 45% of the area’s population
activities include performances, workshops, panels and the future together with its sixteenth- were favela residents. Ten of the smaller
genocide memorial site visits. century core. Its mix of historic, monu- communities and hundreds of homes
mental, modern, post-modern and infor- from the larger ones have already been
mal spaces provides a texture no planned removed. The area residents and their
The Kigali Up music festival, which celebrated its sixth edition
city can offer. The new Museu de Arte associations feel threatened, but cannot
in 2015, features world music, reggae, funk, blues, hip-hop
do Rio (MAR) and the recently-inaugurated get any information about what will hap-
and roots artists, while showcasing what the city has to offer, Museu do Amanhã (Museum of Tomor- pen to them and have not been included
from traditional food to African arts. row), with its spaceship appearance and in discussions or decisions.
high-tech exhibits, are only a short
Kigali Fashion Week promotes culture, fashion and distance from the traditional samba Rio’s City Planning Department and the
entrepreneurship. Bringing together fashion designers from players and crowded streets at the ‘Pedra Development Company of the Port Region
the whole African continent, the event aims to showcase de Sal’, and from the funk forró and (CDURP) are aware of the need for af-
their creative talents and build relationships between local passinho dancing in the nearby favelas. fordable housing in the area, and the
and international designers. The contrast between the barely-filled importance of keeping small businesses
audiences for Rio’s Symphony Orchestra in the area, including the design industry.
The Rwanda Film Festival runs each year for a week, and the 10,000 followers of Pablinho, a The local Morar Carioca programme tries
screening famous international films in five to six venues 15 year-old passinho dancer from the to mitigate gentrification, promote the
around the city. A great experience for film-lovers, this fes- favelas, calls into question the definitions social use of underused or vacant property
tival is mostly free to the audience. During the festival, the of ‘mainstream’ versus ‘marginal’ culture. and facilitate adapting historic buildings
Hillywood Travelling Program also simultaneously takes place. to become affordable housing. The Social
With the slogan ‘The Cinema to the People’, the organizers Successive waves of urban development Housing Plan for the port area specifies
place screens in different hilly locations around the country, have buried and erased part of the city’s the units and locations, yet nothing has
broadcasting films from local artists to more remote areas. cultural history. Then there is the buried been built to date. The biggest stock of
culture in the temporal dimension. The affordable housing is the favelas.
excavation of the port area for renewal
Hobe Rwanda was introduced as a cultural event in Kigali
uncovered a huge stone plaza and portico The question is whether it will be possible
in 2011. Since then, the festival has attracted folk music- - the Cais do Valongo - the place where to counteract market forces and protect
lovers and young artists with a passion for Rwanda’s history slaves were bought and sold. Those who the existing tangible and intangible culture
and culture. Hobe Rwanda aims to bring together a variety died on the journey or upon arrival were of the favelas so they can flourish side
of artists, from painters to musicians, singers and poets with tossed into garbage pits. Their remains by side with the likes of large-scale
a common purpose: to educate and motivate young people have been found beneath some of the modern developments.
to learn more about the Rwandan culture, music and other
traditional activities through this one-day event.
Prepared by UNESCO
135
Control of traffic in public spaces or turning street parking CASE STUDY 54

areas into pedestrian space, allowing the opening of
UZBEKI
Baku (Azerbaijan)
street-side coffee shops or open-air itinerant markets Recognizing women’s AZERBAIJAN
have been used as indicators for human-centred contribution to the art of Azeri TURKMENIST
liveability. Good places for interaction are places where carpet-making

people of diverse backgrounds meet naturally and
IRAN (ISLAMIC REPUBLIC OF)
interact comfortably and pleasurably because of the For centuries, Azeri carpet-making has been transmitted over
nature or attraction of the space and its associated generations orally and through practice, encoding the ge-
activities (KU University of Kansas Work Group for ography, history and lifestyles of Azerbaijan’s many carpet-
Community Health and development, 2015; see also making villages and cities. The practice has predominantly
Chapter 7). been led by women who dye and weave the carpets
through the winter, and create motifs and use colours as
forms of expression and storytelling. Young girls have
THE ROLE OF PUBLIC AUTHORITIES:
learned the art of weaving carpets from their mothers and
RULES FOR THE COMMON VISION
grandmothers.
Carpet-weaving holds high value and is a source of pride

The ability of governments to guide and stimulate the among Azerbaijanis. This was reinforced by the Azerbaijan
making of human-centred cities depends on political will, Government’s decision in 1967 to establish the first special-
technical competence and financial resources, as with the ized carpet museum in the world in the country’s capital,
attainment of any of the intertwined goals and targets of Baku. The State Museum of Azerbaijani Carpets and Applied
the 2030 Agenda. To mitigate conflicts of interest, Folk Arts has since developed into a centre of professional
governments must invariably start with the affirmation crafts and education, including a specialized academic re-
of solidarity and equal rights for all, together with the search centre for the study, conservation and promotion of
following: (a) promote freedom of belief, expression and
the art of carpet-making. The construction of a new museum
building began in 2008 by presidential decree, supported
assembly; (b) establish an inter-ministerial framework for by the Heydar Aliyev Foundation and UNESCO, and the tra-
analysis and decision-making to ensure coherence in ditional art of Azeri carpet-weaving was inscribed on the
governance and decentralization; (c) develop technical Representative List of the Intangible Cultural Heritage of Hu-
competence to support decentralization to enable manity in 2010.
governing land use and define urban and territorial Source: Strelka Institute for Media, Architecture and Design, report for
development through property law, land-use and Study Area 4
building regulations; (d) manage natural and cultural
resources; and (e) site new infrastructure - particularly at all levels, the business sector and civil society; to shape
transport links, utilities, and educational, research and the city’s ‘urban culture’ requires consultations, public
cultural facilities, even if they are to be privately-financed awareness and debate under democratic principles.
projects.
This partnership would need to boost people’s sense of
solidarity and citizenship by fostering an awareness of
place and a sense of belonging to the city, which can be
The urban environment should be an environment supported through heritage and activities that value the
that encourages people to express themselves, to become cultural diversity of the city’s inhabitants. Linking this to
involved, to decide what they want and act on it. public spaces and commerce has been proven to promote
Allan Jacobs and Donald Appleyard, urban designers and theorists positive social interaction between people and develop the
city’s economic base, which all inhabitants understand to
be their common interest to maintain (see also Chapter 9).
Government must be able to intervene at two levels: at

macro level, to organize the management of the city URBAN PLANNING AND ARCHITECTURE
comprising a vast urban territory and in partnership with FOR HUMAN-CENTRED CITIES
the private sector and civil society; and at neighbourhood
level, to encourage the direct participation of the While many historic centres represent only 1% to 10% of
inhabitants (dauge et al., 1997; see also Chapters 5 and 10). the now expanded cities, their conservation is vital for the
identity of cities, citizens’ pride and sense of belonging.
Moreover, the urban forms of many historic settlements
BUILDING THE COMMON VISION built for walkability provide clues to liveability in that they
give particular importance to conviviality at the threshold
The role of public authorities is to create enabling of private and public areas, where multifunctional public
environments for investors and citizens to assemble spaces serve human interaction. But oases of beautiful
under a common vision of the city. For this vision to be and convivial historic centres in the chaos of the larger
shared, it must be developed jointly, involving government city will have limited impact on liveability unless new
136
C H A P T E R
urban extensions can be influenced to benefit from the are dependent on national government subsidies to
assets of the city’s cultural and natural heritage, as survive. To avoid the closure of schools and shops, some
proposed in the 2011 Recommendation on the Historic of these small towns have accepted a disproportionately
Urban Landscape. large number of refugees, immigrant populations and
people receiving government welfare, risking major
Territorial and spatial planning of the 1970s based on changes in the towns’ dynamics, although human
residential, commercial, institutional and industrial uses solidarity witnessed in many cases has been encouraging.
aggravated spatial and social inequities, as well as urban
pollution and energy use. Many cities in the Global North, In cities in the Global South, taking sub-Saharan Africa as
particularly in Western Europe, are now adopting new an example (excepting South Africa and countries of
urban strategies for dense and compact cities while North Africa), urbanization has not necessarily been
promoting mixed-use and mixed tenure (see also Chapter accompanied by the growth of the middle class engaged
5). In certain countries, this has been imposed under law, in diversified production and services as witnessed in
requiring that every city or its wards has 20% to 30% many countries in Asia over the past 30 years. Some even
of residential units as social housing or low-cost argue that liberalized trade and the associated rise of the
residential units. While newly-constructed or renovated economics of comparative advantage have led to the de-
neighbourhoods can be designed and built as such, the industrialization of many sub-Saharan African countries,
transformation of urban districts or small towns with a with the exception of cities servicing oil extraction,
high concentration of low-income housing has proven mining, commercial agriculture, and large-scale and
difficult as they are characterized by social problems of plantation systems, such as coffee. Limited development
unemployment, alienated youth and higher incidents of of urban production coupled with a rise in urban
crime and violence. Concentrations of ethnic minorities consumption is believed to have led to a substantial
in such areas have fuelled racial discrimination. increase in poverty, underemployment and urban
Communalism, reinforced in such areas, is positive in the insecurity (Potts, 2013).
sense of community-based solidarity, but negative in that
inhabitants may be stigmatized for their cultural CASE STUDY 55 PALESTINE
practices. Laws of non-discrimination and positive Nablus (Palestine)
ISRAEL
discrimination in some countries have led to targeted

EGYPT JORDAN
Reconnecting local communities

municipal projects of siting new residential blocks for
L
SAUDI
to culture through adaptive reuse
middle-income families in these areas with improved
ARABIA
public transport, social welfare services and local cultural The historic centre of Nablus (Palestine) continues to thrive
facilities. In the Global South, with limited public funds, despite growing challenges to its setting and identity. Since
such services can be offered by NGOs or universities co- the 1990s, the city has faced increased development pres-
funded by international aid agencies and the municipal sure from the expansion of adjacent urban blocks, calling
budget. for the adoption of a culture-driven urban development pol-
icy that supports safeguarding the city’s distinctive cultural
attributes.
LINKING RURAL VILLAGES, SMALL,
MEDIUM AND LARGE CITIES
The cultural conservation, management and promotion pol-
AS A GEO-CULTURAL ENTITY
icy in Nablus has focused on the adaptive reuse of aban-
doned and damaged buildings to benefit the local
community. The renowned ancient caravanserai of Khan Al-
One of the strategies being applied to promote a balance Wakala was rehabilitated to become a mixed-used space of-
of population categories is to mutualize urban fering a public arena for events, accommodation and cultural
infrastructure and services for a larger planning area, activities. In the rehabilitated family houses of AbdelHadi,
composed of rural villages, medium and small towns with Hashim and Al-Amad, local institutions have offered educa-
improved connectivity to bigger cities and metropolises tional services for youth and children, such as a kinder-
(see also Chapter 8). Establishing factories, businesses, garten, and music and language classes. In addition,
health and educational services, and urban and peri-
through a comprehensive conservation, management and
urban agriculture for inter-communal sharing of
research project, the abandoned Shikmu (Tell Balata) site,
the earliest settlement in the Nablus area, was transformed
employment opportunities and services are some of these into an archaeological park with an interpretation and visi-
actions. Yet increasingly, governments face great difficulty tor’s centre. The project has enabled the local community to
in redressing spatial and social inequalities. They have reconnect with the site and strengthen the local economy.
fewer means for capital investment, even for public- The cultural assets of Nablus have been a strong driver for
private partnership (PPP) arrangements to stimulate such the city’s sustainable development, and such interventions
development, and the private sector is more interested in have empowered local communities, individuals and groups
investing in speculative finance, or delocalizing to interact and better understand the significant role of
production to countries with lower labour costs with culture in their lives.
fewer compliance measures. Inhabitants who depended Prepared by UNESCO
on jobs in local industries have left, and those who remain
137
PERSPECTIVE 15 valuing local cuisine through the slow-food movement, as

CO-PRODUCING CULTURE AND THE URBAN ENVIRONMENT well as organic food with geographical indication labels
Andy C. Pratt Centre for Culture and the Creative Industries, City University of London and health-conscious modes of life, have now become a
(United Kingdom of Great Britain and Northern Ireland) new planet-conscious urban culture in the Global North
and in many emerging markets (see Chapter 10).
Culture should not be thought of as a The making and the re-making of the
late addition, or a ‘plug-in’ to urban built environment is an embodied, social
HUMAN-CENTRED INFRASTRUCTURE
policy-making: culture lies in the inter- and situated practice of culture. Where
stices of each and every relationship. the pendulum swings too far to the ide-
As such, it is important that we grasp alized culture/design or to uniqueness of FOR PLANET-SENSITIVE CITIES
the real potential of culture to be hybrid, specificity of technique or material, we
to straddle either/or dualisms, and make diminish its value. Culture is not the Cities of today must be reclaimed from individual cars and
motorcycles that clog up urban space. Increasingly, cities
us re-conceptualize the built environment. object or the practice: it is the object and
of the Global North are limiting the penetration of cars in
There are three key challenges here. practice, as well as our relationship to it.
Firstly, the division between the instru- We can see this happening on different
mental value and the intrinsic values of scales, from craft skills to the vernacular. the city core to promote the use of mass transport
culture. The ‘plug-in’ mode of thinking This is a social form, an embedded form systems, some of which are designed and organized with
covers both traditional cultural policy, of problem-solving that relates to physical shops, public services and cultural spaces for artists and
as well as the instrumental use of culture shaping, but also social shaping. In urban musicians. Many bus and train terminals in cities of the
in development. We need to move be- or regional settings, it is not only the Global South have the same multifunctionality with
commerce and services installed spontaneously by people
yond such thinking. Secondly, technology buildings, but also the mode of social
and culture. Again, we often see cultures
in search of clients in a busy transport hub. Mass
and cultural practices that weave them
‘destroyed’ by technologies, or challenged together and produce meanings. The
by the ‘inevitability’ (or techno-deter- spaces between buildings, the streets transport systems, car-sharing, bicycle-sharing modalities
minism) of technology. Culture is always and public spaces are further examples whether publicly- or privately-owned and operated, are
about tools, ways of doing and making, of the power of cultural relations to essential to counter the ever-growing number of
and culture constantly evolves: tech- create meaning and form; they also individual car users (see also Chapter 4). The idea of
nologies are impossible without culture. maintain the potential to disrupt and fail carsharing has existed for decades in cities of the Global
South, where sharing has been the only means for
Once more, where we conceive of them communities if they neglect to achieve
as separate or opposites, we lose a the holistic notion of culture and built
massive opportunity. Thirdly, past and environment. mobility. Social capital of each community has been the
future. Culture is often presented as most instrumental in the development of such business.
something preserved in aspic, the past, The mutual relationship between culture
which is threatened by the present and and environment produces meaning Green energy should also be promoted in human-centred
future. However, we know that the and values, mediated by people and cities, not only for environmental reasons but also to
culture is a mode of problem-solving their practices. Simply ‘adding in’ culture participate in peace-building to reduce armed conflicts
over mining and distribution of scarce energy resources,
and innovation in the social and economic confines it to an aesthetic ‘prison’. Co-
spheres. Hence the past is a storehouse producing the built environment with
of ideas and approaches to challenges. culture ensures that the potential and which induces escalated defence spending, unacceptable
Either/or is not an option; we need creativity of people is engaged and loss of human lives and destruction of vital industries.
both, culture is about both continuity harnessed. Culture is not an optional
and change. extra, it is integral.
INTERGENERATIONAL RESPONSIBILITY
AND FOSTERING VOLUNTEERISM FOR
SOCIAL COHESION
In most countries of Asia and Latin America, while rapid
urbanization has resulted in economic growth and an Human-centred cities need affordable care for the ageing
increase in the middle-class population, the process has population, estimated to reach 21% of the global
created the urban stress decried earlier. Cities of the population by 2050, including some 392 million aged 80
Global South would also benefit enormously by linking or over (United Nations, 2013). To facilitate participatory
villages, towns and cities in a single planning area, but the care services of vulnerable citizens, flexible working
problem of connectivity through mass transportation with hours, volunteerism through municipalities and
limited capital investment remains. When these diverse associations, and the mobilization of pupils and students
entities within a defined territory can be held together are emerging in more and more cities. In Africa, rather
under a geo-cultural theme, cooperation can replace than costly establishments of senior and child care
competition, such as in the cultural landscape of the Loire centres, direct cash transfers from government and aid
Valley (France) (see Perspective 39). agencies to the poor have proven effective. Through
informal intergenerational care centres, the rich social
Linked to the above territorial planning scheme is the values of many African communities and the culture of
production of food and other consumer items with respect for the elderly is maintained by rekindling their
greater ecological concerns. Short-supply food chain and role as story-tellers, transmitting the oral tradition to the
younger generation. (UNICEF/OdI, 2009).
138
C H A P T E R
Thimphu (Bhutan).
© LifeInCaption/Shutterstock.com*
C A S E ST U DY 56 UNITED KINGDOM
DENMARK
KNOWLEDGE PARTNERS ESSENTIAL FOR
SUCCESSFUL DECENTRALIZATION
OF GREAT BRITAIN
AND
NORTHERN IRELAND
Strasbourg (France) NETHERLANDS
BELGIUM
Cars or people? LUXEMBOURG
Human-centred cities need partnerships between

GERMANY
FRANCE
SWITZERLAND
various entities in all the areas referred to above but, in

AUSTRIA
The city of Strasbourg was among the ITALY
pioneers in France to ban individual SPAIN

particular, to collectively build a new urban culture that
cars from its city centre and reintroduce a tramway across can coexist with cultural values that evolve over time,
the city. In the process it reduced the number of parking space and social gaps. As governance around the world
spaces in the city and increased the cost of those remaining, moves towards decentralization, competence must also
accompany the process, hence making knowledge
while giving free parking spaces beside the terminus of
partners one of the most essential stakeholders for
the tramway to induce the use of public transport. Today,
20 years after the first tramway line became operational,
the 6 lines serving 69 stations on 56 km of track is the human-centred cities.
CONCLUSION
longest in France, and is synchronized with the city’s bus
system, with 30 urban lines and 11 interurban lines carrying
passengers over 11 million km every year. During the past
decade, Strasbourg has created the longest urban bicycle Although the above-mentioned examples of cultural
lane in France and numerous public squares and recreational inputs to development are merely drops of solutions in an
spaces. Establishing a weekly farmers’ market in one of the ocean of needs, they nonetheless represent encouraging
public squares in the city centre and an exhibition hall for waves. If the future of humanity is irrevocably linked to
local agricultural goods in a historic monument of the former the city, humanizing sustainable development goals
through the social capital of people, understanding the
Customs House were part of the city government’s initiatives
culture-based relations with the planet, promoting ethical
to support the short-supply food chain movement and give
new visibility to local farmers and food industries. In addi-
tion, the ‘zero pesticide’ policy adopted by the municipality prosperity in all its forms, fostering the culture of peace
is changing the vegetation of the urban green spaces with through unity in diversity, and strengthening genuine
weeds previously destroyed now being a feature of the land- partnerships for inclusive human development are no
scape design. longer utopian ideals but pressing needs.
The city’s expansion towards the Rhine River to connect

Strasbourg to the German city of Kehl has demonstrated
new environmentally-sensitive urban residential projects,
a third of which are designated for low-income families.
These so-called eco-districts are built around the natural
heritage of historic waterways and urban green spaces.
Complemented by its numerous higher education institutes
and a wide array of cultural activities ensured by 30% of
the municipal budget devoted to culture, Strasbourg has
banked on a people-centred strategy to boost the liveabil-
ity of the city.
Source: Minja Yang, Humanizing cities through culture
139
CHaPTer
2 INCLUSIVE
CITIES
San Francisco (United States of America)

© sp.VVK/Shutterstock.com*
IN THIS CHAPTER
IN FOCUS
Policies and plans can help foster cultural

inclusiveness and mixity in urban areas. Article:
Yudhishthir Raj Isar, The American University of Paris (France)
Urban governance requires collaborative and the Institute for Culture and Society, University of Western
decision-making processes and ownership in a Sydney (Australia). Towards creative urban diversity: from the
‘multicultural’ to the ‘intercultural’
spirit of partnership among culturally-diverse
groups, local government, civil society and the Perspectives:
private sector. • Steven Vertovec, Director, Max Planck Institute for the Study of
Religious and Ethnic Diversity, and University of Göttingen
(Germany). The growth of super-diverse cities
Principles of cultural equity and • Gabriella Battaini-Dragoni, Deputy Secretary General, Council
recognition need to be embedded in all city of Europe. Culture as a tool for promoting inclusive and socially-
policies and programmes to ensure the cohesive cities
recognition of cultural rights of all groups. • Alexandra Arce Plúas, Mayor of Durán (Ecuador). Leveraging
cultural diversity for sustainable urban development
• Ien Ang, Institute for Culture and Society, University of
Cultural diversity is an asset rather than Western Sydney (Australia). Sydney’s Chinatown in the twenty-
a divisive force, and promoting intercultural first century
understanding is essential to social cohesion in
cities. The cultural identities of all people Case studies:
• Durban (South Africa). Targeting discrimination and
including migrants must be recognized and they empowering marginalized groups
must be assured equitable access to and benefit • Santiago de Compostela (Spain). Balancing tourism carrying
from cultural resources and initiatives. capacity with residential regeneration in historic city centres
• Vancouver (Canada). A contemporary cityscape with
Intercultural competences should be cultural diversity as a defining feature
• Montevideo (Uruguay). Candombe: the drumbeat
nurtured through education (for students, of cultural inclusiveness
parents and teachers) and intercultural • Malmö (Sweden). Local solutions for promoting tolerance
140
awareness training for local authorities and in host communities
stakeholders.
2
TOWARDS CREATIVE URBAN DIVERSITY:
C H A P T E R
FROM THE ‘MULTICULTURAL’ TO THE ‘INTERCULTURAL’
YUDHISHTHIR RAJ ISAR
The American University of Paris (France) and the Institute for Culture and Society, University of Western Sydney (Australia)
CITIES HAVE ALWAYS BEEN CRUCIBLES OF dIVERSITY – AS WELL AS OF CREATIVITY ANd INNOVATION –
IN WHICH PEOPLE OF MANY ETHNICITIES HAVE LIVEd WITH ANd INTERACTEd WITH EACH OTHER
(HALL, 1998). CONTEMPORARY MIGRATORY
FLOWS ARE GREATLY INTENSIFYING THIS
Cities are smells: Acre is the smell of iodine and spices. Haifa is
HETEROGENEITY (OR INTROdUCING IT WHERE IT
INCLUSIVE CITIES
the smell of pine and wrinkled sheets. Moscow is the smell of vodka on
HARdLY EXISTEd BEFORE). THEY ARE ALSO ice. Cairo is the smell of mango and ginger. Beirut is the smell of the
MAKING IT FAR MORE COMPLEX. THE NOTION OF sun, sea, smoke, and lemons. Paris is the smell of fresh bread, cheese,
‘SUPER-dIVERSITY’ CAPTURES THIS COMPLEXITY, and derivations of enchantment. Damascus is the smell of jasmine
POSITING MUTUAL RELATIONS OF CAUSE ANd and dried fruit. Tunis is the smell of night musk and salt. Rabat is the
EFFECT BETWEEN ETHNIC IdENTITY ANd OTHER smell of henna, incense, and honey. A city that cannot be known by its
VARIABLES (SEE PERSPECTIVE 16). BUT WHILE smell is unreliable. Exiles have a shared smell: the smell of longing for
CULTURAL IdENTITIES dO NEEd TO BE SEEN IN something else; a smell that remembers another smell. A panting,
CONJUNCTION WITH THESE OTHER MARKERS, nostalgic smell that guides you, like a worn tourist map, to the smell
WHEN WE APPLY A CULTURAL LENS, ETHNICITY
of the original place. A smell is a memory and a setting sun. Sunset,
here, is beauty rebuking the stranger.
IS THE PRINCIPAL FORM OF dIVERSITY THAT
CONCERNS US.
Mahmoud Darwish, poet and author
S uch diversity is by no means new to our age, yet three

of its contemporary features are novel. Firstly, it is
both wider and deeper than ever before. Secondly, it
THE GROWTH OF SUPER-DIVERSE CITIES
Steven Vertovec Director, Max Planck Institute for the Study of Religious and Ethnic
Diversity, and University of Göttingen (Germany)
is far more affirmative, even defiant, as minorities and
immigrant groups alike demand equal rights, the
The increasing movement of people to unfold differently in cities where the
opportunity to participate in and shape collective life cities, whether rural-to-urban or interna- welfare state is absent and where there
and to be recognized and reflected in the makeup tional, manifests in the spatial concen- is a lack of formal employment, decent
and messages of the city’s institutions and self- tration of people from ever more diverse housing or social protection which affects
understandings (Parekh, 1997). Thirdly, the pushes and backgrounds. Everywhere, people with both migrants and local residents alike’
pulls of globalization, which generate the migratory more varied cultural, religious and linguistic (IOM, 2015). These developments manifest
patterns, entail sustained transnational and/or traits are coming into regular contact in differential socio-economic positions
transcontinental flows of ideas, symbols and meanings,
with one another. Migration-driven pop- and geographical concentrations of specific
ulation diversification and urban expansion groups, social policies and modes of
permanently linking the places of origin of culturally are two linked processes that define our daily interaction.
diverse urban populations and their present sites of times. Multiple causes, categories and
settlement. channels of migration, combined with In cities across the globe, new processes
the migrants’ shifting cultural and geo- of diversification and the growth of
We also live in an age of ‘heterophilia’, which values graphical origins, account for complex super-diversity have sometimes wrought
otherness in and for itself (Taguieff, 1987). Cultural transformations of urban populations new modes of prejudice, segregation,
diversity, therefore, is a valuable manifestation of the
worldwide. Changing patterns of migration discord and conflict. Similarly, these pro-
to cities have created new configurations cesses have also fostered new practices
human spirit, that enriches and vitalizes collective life, of nationality, ethnicity, language, religion, of cooperation, civility and conviviality
that is aesthetically pleasing, that provides knowledge and age, gender, legal status, class and human (Vertovec, 2015). In many places charac-
experience about good and useful ways of doing things, capital. Together, these processes of di- terized by new dynamics of urban super-
that widens the range of moral sympathy and imagination, versification have led to the growth of diversity, there is evidence of emerging
and that encourages critical self-reflection (Parekh, 1997; ‘super-diversity’ (Vertovec, 2007). cosmopolitan cultural practices, complex
UNESCO, 1998, 2001). Principles of equity, human rights
social identities, shared social spaces,
and self-determination require us to respect cultural
A key feature of super-diversity is that innovative entrepreneurial activity and
new migrants tend to inhabit urban inclusive social movements.
diversity. Taking a more instrumental view, we see a spaces that still host migrants from pre-
diversity of heritages and expressive forms as resources vious waves and generations. New mi- We still have much to learn about how,
that enhance the creativity of the city and strengthen its grants often present social traits and where, when and why positive or negative
‘brand image’. Yet we also have reason to fear toxic cultural forms that are being ‘layered’ social patterns and new cultural practices
mobilizations of cultural difference that generate tensions on top of earlier constellations of diversity. arise or transform within super-diverse
and conflicts – all of which are tragically wasteful of
Members of both ‘old’ and ‘new’ diversities urban contexts. Scientists, planners, politi-
comprising migrants and minorities are cians and civil society organizations
energies and resources (World Commission on Culture often obliged to contend with modes of should seek to understand better how
and development, 1996). Today, for example, discrimination by a presumed cultural current processes of migration and pop-
unprecedented flows of migrants into European cities majority or ‘mainstream’. Levels and ulation diversification are linked to shifting
have fanned high levels of intolerance, reviving the types of infrastructure play important inequalities and possible unrest, as well
spectre of xenophobia – or ‘heterophobia’, the hatred of roles in channeling super-diversity out- as to inventive and resourceful ways
otherness – that the continent thought it had left behind. comes too, since ‘urban diversities will that people are learning to live together.
141
CASE STUDY 57 UNESCO/UNdP, 2013). As underlined by the 2030

Durban (South Africa)
MO
Agenda for Sustainable development, it is essential to
‘work with local authorities and communities to renew
BOTSWANA
Targeting discrimination
and plan our cities and human settlements so as to foster
SWAZILAND
NAMIBIA
and empowering
marginalized groups LESOTHO community cohesion and personal security and to
stimulate innovation and employment’ (UN General
SOUTH AFRICA
The Grants-in-Aid, Non-Racism Assembly, 2015).

and Non-Sexism Committee is
headed by city councillors within the Municipal Council of
eThekwini Municipality, Durban (South Africa). The Grants- URBAN CULTURAL DIVERSITY: A VARIED
in-Aid programme provides communities with equipment to LANDSCAPE
set up self-help initiatives and supports non-profit organi-
zations by providing them with necessities that are either Although the trend towards greater ethnic diversity is
most marked in the ‘global cities’ of the Global North, to
inaccessible or unaffordable to them. There are eight types
of target organizations that can benefit from Grants-in-Aid:
which migrants flock, cities everywhere and of all sizes are
cultural, sporting, economic empowerment, education, early
childhood development, adult basic education, and social becoming ever more diverse (IOM, 2015). In many of them,
welfare. The targeted groups are youth, children, the elderly migration is a more important determinant of population
and people with special personal challenges. growth and age structures than fertility and mortality. The
geography of migration flows is changing in line with
By providing grants and equipment, the Committee aims to changes in the global economy. Nearly one in five of the
help marginalized groups become self-sufficient through en- world’s foreign-born population resides in established
couraging community engagement and collaboration. Es- ‘global gateway’ cities. In many of these, such as Sydney
tablishing contact and building relationships with (Australia), London (UK) and New York City (USA),
communities is central to the work of the Committee. The migrants represent over one-third of the population and,
in cities such as Brussels (Belgium) and dubai (UAE), they
Committee runs poverty alleviation programmes in more
account for more than half. In Asia and Africa, rapidly
than 40 wards, including soup kitchens and skills work-
shops. Social meetings are organized for senior citizens, day
care centres have been set up, gender issues have been growing small cities are expected to absorb almost all the
tackled, and a youth desk has been established. The Com- world’s future urban population growth. In 1960,
mittee contributes to the UNESCO network, the International Johannesburg (South Africa) was the only city in sub-
Coalition of Inclusive and Sustainable Cities - ICCAR. Saharan Africa with a population of over a million; by 1970,
Source: International Coalition of Inclusive and Sustainable Cities - Cape Town (South Africa), Kinshasa (democratic Republic
ICCAR
CASE STUDY 58
FRANCE
Santiago de Compostela (Spain)

For all these reasons, the governance of urban cultural Balancing tourism
diversity has become one of the principal challenges that
PORTUGAL
SPAIN
carrying capacity with
cities face in our time – as well as one of the chief residential regeneration
opportunities. Urban policies inspired by a spirit of in historic city centres
inclusive pluralism can make the opportunities outweigh MOROCCO ALGERIA
the threats and produce a true ‘diversity dividend’ (Wood Widely renowned as a major European pilgrimage site,
and Landry, 2007). The search for this dividend is both an Santiago de Compostela (Spain), like several other World
ethical and practical responsibility, for city-dwellers and Heritage properties, has become a magnet for mass tourism.
their authorities alike. It is also a key ingredient of the The myriad of annual visitors that converge in the city’s his-
ideal of ‘culturally sustainable development’ (Throsby, toric centre, particularly in the area surrounding the Santiago
2015). It is not only a challenge of intergenerational equity,
de Compostela Cathedral, is eroding the residential charac-
so that cultural variety can be transmitted to future
ter and threatening the authenticity of the city. Urban gen-
trification, the abandonment of local inhabitants from the
generations; but it is also one of intragenerational equity city centre to suburban areas and the consequential increase
through which access to cultural production, participation in social exclusion has highlighted the need for housing re-
and enjoyment is equitably distributed; finally as a habilitation and the improvement of open spaces. In order
challenge of sustaining cultural diversity itself and of an to address these challenges, the city has developed conser-
ongoing dynamic of diversity as well. Just as ecologically vation, rehabilitation and urban development policies
sustainable development requires the protection of focused on the city centre within the comprehensive frame-
biodiversity, so culturally sustainable development work of the Special Plan for the Protection and Restoration
requires the maintenance, renewal and transmission of of the Historic City of Santiago de Compostela. The objec-
diverse heritages and forms of cultural expression. tives are to rehabilitate the city’s residential function,
deploying them is a potential source of economic,
improve the population’s living conditions, preserve
social, cultural and political capital for cities and
commercial activities and boost the environmental regen-
eration of open spaces.
their inhabitants, so as to ‘build the strength and vitality
of urban communities’ (UN-Habitat, cited in
142
C H A P T E R
INCLUSIVE CITIES
Saint George Maronite Cathedral and Al-Omari
Mosque, Beirut (Lebanon)
© BigRoloImages/Shutterstock.com*
C A S E ST U DY 59 of the Congo) and Lagos (Nigeria) had reached that

number, and by 2010 there were 33 million people in
Johannesburg (IOM, 2015). While internal migration flows
Vancouver (Canada)
A contemporary predominate in some cases and international flows in
cityscape with cultural others, the challenges and opportunities they present are
diversity as a defining CANADA
very similar (UNU and GCM, 2014).
feature UNITED STATES
OF AMERICA
Vancouver (Canada) is a known leader in integrated plan- Figure 1. FOREIGN-BORN POPULATION IN MAJOR CITIES
ning practices for environmental sustainability coupled with Source: IOM, 2015
creative contemporary planning and design. Its culturally- Foreign-born population
in %
diverse population is also a key component of the city’s gov- 90
ernance and culture-based strategies. None of the city’s
80
main ethnic groups (Chinese, English, French, Filipino,
70
German, Indian, Irish, Scottish) represent more than 25% of
the population. As the majority of the population has a 60
mother tongue other than English, the city addresses 50
planning issues with key documents made available in 40
languages, such as Chinese, Hindi, Punjabi, Vietnamese, 30
Spanish and French, and multilingual phone lines. 20
10
Addressing inclusion within the city’s culturally-diverse
0
population underpins several of the city’s strategies.
Dubai
Brussels
Toronto
Auckland
Sydney
Los Angeles
Singapore
London
New York
Melbourne
Amsterdam
Frankfurt
Paris
Stockholm
Montreal
Rotterdam
Chicago
Madrid
Milan
Vancouver’s ‘Diverse communities and multiculturalism’
activities form part of the Building Liveable, Sustainable and
To
Inclusive Communities programme, and provide support to

newcomers in adapting to local communities and finding
work relevant to their skills. Specific initiatives provide
LGBTQ support, and tackle racism, discrimination and bul-
lying. The programme also supports a ‘Dialogues’ project to different principles and methods have been adopted to
address these new urban configurations. Since there is
increase understanding and strengthen relations between
not the space here to review these in depth, this section
indigenous and immigrant/non-indigenous communities.
Overlapping jurisdictions with provincial and federal gov- offers instead an overview in broad brushstrokes,
ernments have presented complications in implementing accompanied by selected references to good practices.
multicultural initiatives at municipal level, and non-profit or- Three main policy ‘models’ have emerged in Western
ganizations have been particularly instrumental in spear- Europe and North America and have been gradually
heading new ventures, working across sectors and adapted to different historical backgrounds and present-
disciplines. The non-profit Mole Hill Community Housing day sociopolitical realities elsewhere. Firstly, the model of
Society, for instance, has been active in leading initiatives ‘civic cultural integration’ (France and, to some extent, the
to preserve and make available affordable housing in one American ‘melting pot’) that asks both existing minorities
of Vancouver’s oldest residential districts. The key goals of and newcomers to assimilate into the majority culture in
these activities are to strengthen cultural diversity, environ- return for citizenship and civic rights. Secondly, the
German approach in the 1960s of inviting ‘guest workers’
mental sustainability and economic viability through up-
grading older housing stock using environmentally-sensitive
practices for original tenants and other low-income residents to visit for work but not for extended residence or
and seniors. citizenship. Largely discredited in the 1980s, this
approach is making a comeback in the guise of ‘managed
The success of Vancouver as a magnet city for both internal migration’ programmes (yet at the same time many
and external migration has resulted in steep property prices German cities have put in place enlightened policies
and a lack of affordable housing in the city centre. These for cultural diversity). The third model is that of
remain key challenges for the city. ‘multiculturalism’, adopted notably in Canada and
Source: School of Restoration Arts at Willowbank, report for Study Area 7 Australia (as well as in the USA), but which appears merely
143
to celebrate diversity without building either loyalty to in other words, have helped create the very divisions they
the wider community or dynamic interactions between were meant to manage’ (Malik, 2015).
communities. As a recent critique has put it, ‘multicultural
policies… seek to institutionalize diversity by putting
B
CASE STUDY 60
people into ethnic and cultural boxes - into a singular, PARAGUAY
homogeneous Muslim community, for example - and

Montevideo (Uruguay)
defining their needs and rights accordingly. Such policies,
Candombe: the BRAZIL
drumbeat of cultural CHILE

inclusiveness ARGENTINA
URUGUAY
PERSPECTIVE 17
CULTURE AS A TOOL FOR PROMOTING INCLUSIVE AND SOCIALLY- In November 2006, Uruguay’s
COHESIVE CITIES Chamber of Deputies debated a
Gabriella Battaini-Dragoni Deputy Secretary General, Council of Europe
bill to declare the third of December each year as a ‘National
The Council of Europe took up the chal- through dynamic public participation, Day of Candombe, Afro-Uruguayan Culture and Racial Equity’.
lenge of working on a new policy as well as investing in community build- As the background justifying the bill explained, ‘Some years
paradigm for managing diversity in the ing and empowerment infrastructure; ago the beat of the drum in public was either repressed or
twenty-first century. The White Paper on •Residence-based citizenship and access considered dismissively […] This led to the folklorization of
Intercultural Dialogue set out what we to rights. This involves, inter alia, training the candombe as another facet of discrimination by a large
believe is the right political tone for this municipal staff and other key actors in part of society, and even its rejection by some Afro-descen-
work, stating that ‘the challenge of living cultural competences to eliminate barriers dants bent on social advancement, who chose to distance
together in a diverse society could only to access to rights and structural dis- themselves from their culture’. Attitudes were nevertheless
be met if we can live together as equals crimination, and offer real opportunities changing, the legislative justification continued: ‘In recent
in dignity’ (Council of Europe, 2008). and resources for all citizens to realize years, candombe has grown as an expression of our culture;
Equality and dignity are the two key their potential; the beating of drums is often practised in barrios and cities
components of the new policy paradigm •Know-how for realizing the diversity where the sound of the candombe is integral to the urban
for diversity, which goes beyond assimi- advantage. While diversity holds an landscape’.
lationist and multiculturalist approaches. enormous potential for creativity and
growth, this potential can only materi- From their earliest presence in what is now Uruguay, the
From this conceptual starting point, the alize if diversity is positively welcomed ‘African nations’ engaged in ritual drumming and celebratory
Council of Europe has developed the in- and allowed to express itself and con- dancing on Sundays and holidays, until such celebrations
tercultural integration policy paradigm. tribute to change. Recognizing that
were banned inside and outside the city walls of Montev-
We did so in partnership with cities in people of a ‘minority’ social and cultural
ideo in the early part of the nineteenth century (over time,
recognition of their capacity to drive background can make a meaningful
change. Today, over 90 cities in Europe contribution to policy-making and to they were again permitted outside the city walls). By the
and beyond are using this approach to decision-making in both private and midpoint of that century, the candombes saw a resurgence,
sustain diversity, learning together and public organizations, is a skill which gaining increasing popularity among all Montevideans,
innovating within the framework of the needs to be cultivated; whether of African or European descent. The candombe
Intercultural Cities Programme. These •Reducing segregation and increasing flourished especially in the context of the Lenten Carnival,
cities represent a powerful voice for the mixing and interaction in the public where candombe troupes or comparsas brought together
recognition of diversity as an asset for space, residential neighbourhoods, dancers, singers, drummers and other musicians, often
societies’ development and a rich source schools and cultural institutions. in elaborate costumes, to parade through the streets of
of experience and know-how which can Montevideo.
help shape policies at other levels of Arts and culture make an essential con-
governance. tribution to these goals, helping to tran- A tradition of undisputed African ancestry, candombe suc-
scend limited (and often confrontational) cessively expanded its appeal and participation over time to
The intercultural integration approach political expression, facilitating richer and incorporate all Uruguayans, black or white. It had repeatedly
has several key elements: more productive communication, building been rejected by some, even within the Afro-Uruguayan
connections, relationships and ultimately community, in favour of international models of modernity,
•A vision of the local community as an trust between previously isolated or even and it had resisted repression under the military dictatorship
open and inclusive entity, cultivating a hostile individuals and communities. This (1973-85). The law – and the inscription of candombe on
pluralistic identity, based not only on is why Intercultural Cities are encouraged
the Representative List of the Intangible Cultural Heritage of
common cultural heritage (language, to involve artists and add a cultural di-
Humanity in 2009 – restored candombe as the ultimate
religion, etc.) but on common values. mension to actions and initiatives in all
Local discourse needs to communicate policy fields. And the results are there – symbol of the contributions of people of African descent to
and nurture this vision, reaching beyond whether fighting stereotypes about mi- Uruguay’s culture – but also of its inclusiveness and creativity.
‘us’ and ‘them’, minorities and majority, grants and refugees, increasing partici- Prepared by Frank Proschan
fixed personal identities and identity pation in community meetings and events,
politics; giving voice to citizens in urbanism Hence, the policy preference has shifted to a spirit and
•An urban pedagogy that enables com- projects by using different forms of artistic practice of ‘interculturalism’ that requires new schemas
of thinking and acting on how diverse communities can
mon values to be understood and expression, or developing new ideas for
shared by all members of the local local economic development - arts and
community, including newcomers, re- culture help to reach out farther, break live together in productive harmony instead of leading
gardless of their origin and background. barriers and build cohesive and vibrant parallel lives (Isar, 2002). Many municipal and civil society
It involves openly debating differences communities. actors have adopted interculturalism as a policy stance.
and divides and forging solutions The Council of Europe’s Intercultural Cities Programme
(see Perspective 17), carried out in 12 European cities,
144
C H A P T E R
has mapped out many innovative pathways for this P E R S P E C T I V E 18
purpose (Council of Europe, 2009). One of its participant
LEVERAGING CULTURAL DIVERSITY FOR SUSTAINABLE URBAN
cities, Barcelona (Spain), has led the way. Unveiled in DEVELOPMENT
2010, the ‘Barcelona Interculturality Plan’ serves as a Alexandra Arce Plúas Mayor of Durán (Ecuador)
roadmap to address the challenges of ‘coexistence in
diversity’ across the city. The Plan makes interculturalism,
INCLUSIVE CITIES
Durán (Ecuador) is a city that was born We are encouraging these initiatives
with its focus on the relationships and interaction and has developed as a result of migratory through tax incentives for investment in
between different cultural groups, a fundamental and
processes over the past century. Thousands culture and local heritage recovery, and
of Jamaicans who built the railway, competitive funds for projects related to
integrated part of city practice across all departments and people from other provinces along the the participation of the community in
services. Such interculturalism is slowly becoming part of coast, and hundreds of indigenous people cultural and artistic activities, such as
the patchwork of approaches observed across Europe who arrived from the Ecuadorian mountain folk arts, crafts and informal education.
and North America. Yet recent years have also seen an ranges to the coast have generated a We enhance the participation and dialogue
increasing tendency to privilege forms of migration that unique cultural mix in Durán. through the creation of cultural spaces
offer economic returns, to impose tests to ascertain for families, such as ‘Cultural Itinerant
language and other dimensions of cultural ‘fitness’ and to
Since we assumed the municipal admin- Festivals of Craft and Folk Arts’, which
istration, we have launched educative are also space to exhibit our handicrafts.
put pressure on minorities who are perceived to be ‘self- and informative campaigns to enhance
segregating’ themselves from the majority, while turning the slogan ‘Orgullo por lo tuyo’ (‘Pride The recovery of history and local culture,
a blind eye to a growing underclass of undocumented for what is yours’), to recover the confi- generated by a mixture of migrant cultures,
migrants who perform a range of grey, underpaid but dence, recognition, repute, history and is documented and promoted through
useful tasks (Wood, 2012). love for the land of our inhabitants. Ac- reading and animation projects for chil-
cordingly, the different cultures that con- dren, vacation programmes in art and
C A S E ST U DY 61 verge in Durán have contributed to the culture, history projects of high relief
development of folk arts and local history, sculptures on railway facades, and the
Malmö (Sweden)
which supports its recovery and its value recovery of iconic places in the city, as
Local solutions for for the present and future development part of an overarching objective to reduce
promoting tolerance in NORWAY FINLAND of the city. social problems in Durán.
host communities
SWEDEN ESTONIA
Following this line of thought, we are Since the beginning of this administration,
RUSSIAN
The Roma Cultural Centre was LATVIA
FEDERAT exploring the urban recovery of the city our strategic institutional plan incorporated
DENMARK
opened in Malmö (Sweden) in centre, where Durán’s history was born. the Millennium Development Goals and
2009 to raise public awareness of the situation of Roma We want to transform it into an area for their evolution towards the Sustainable
people, and to increase their participation in society. The developing culture and art, and a space Development Goals. We promote these
Centre was established on the premise of promoting knowl- for creation and creativity for the new goals in each of our activities using in-
edge and greater understanding of the Roma culture within generations who look for opportunities formative material for our beneficiaries
the host community as a means of nurturing tolerance and to stay in the city. and working with civil society and the
private and public sectors at all levels.
dialogue, and combating prejudice and fear.
The Centre houses a museum that documents the various

Roma groups in Sweden over the past five centuries, with
collections of crafts, clothing, objects and jewellery donated erupted at the intersection of cultural and religious
by Roma families and individuals. The Centre also offers difference. Mumbai (India), which is home to people
originating from across the entire Indian sub-continent,
Roma music, films, books and cuisine and organizes lectures,
has seen highly exclusionary policy and practice by a
art exhibitions and other events. The museum is the only
one of its kind in Sweden and contributes to Malmö’s activ-
ities as a member city of the International Coalition of Inclu- previous city administration dominated by a nativist local
sive and Sustainable Cities - ICCAR. political party. Recent neo-liberal and entrepreneurial
Source: International Coalition of Inclusive and Sustainable Cities – urban policies have made Latin American cities starkly
ICCAR segregated, but on socio-economic more than ethnic
grounds. However, more progressive political actors are
now seeking greater equality and openness through an
In Asia’s plural societies, which have sometimes been urban human rights approach. Mexico City (Mexico), for
shaped by a shared colonial past (including labour example, has a Statute for ‘Hospitality, Intercultural
migration), rapid urban growth has brought an influx of Attention to Migrants and Human Mobility in the Federal
both rural people (often ethnically mixed) and of an district’ that sets policy, mechanisms and standards in the
international workforce. Spatial segregation based on areas of hospitality, multi-ethnicity and human mobility
class and ethnic origin, or the two combined, is common, for migrant families.
while thought-out policies regarding urban diversity are
rare. different identities are increasingly recognized as African cities face greater pressures of migration, both
valid in the public sphere, witness the multilingualism internal and external, but there has been little sign of civic
respected in Singapore, with its four official languages: agency as regards cultural integration, although given the
English, Malay, Mandarin Chinese and Tamil (Ooi, 1995). prevailing patterns of fluid informality in the continent,
Yet in India, Myanmar and Pakistan, tensions have often just as many ‘may be seeking to claim the soil and their
145
P E R S P E C T I V E 19 place in it, others wish only to walk upon it and cross it’
SYDNEY’S CHINATOWN IN THE TWENTY-FIRST CENTURY (Pieterse, 2010). The many informal settlements in
Ien Ang Institute for Culture and Society, University of Western Sydney (Australia) African cities (as well as elsewhere) add to the richness of
the cultural mix. dakar (Senegal) is portrayed as a haven
Many cities around the world have a ceremonial archways (or paifang) to de-
Chinatown, an area so called to denote lineate the precinct, and installed red of harmony and cross-cultural cooperation ‘but which
its large Chinese migrant population and lantern lighting and other stereotypically exists in spite, rather than because, of municipal action or
its notional ‘Chinese’ character. The term ‘Oriental’ paraphernalia to attract tourists policy and which may (if not consciously nurtured) be
‘Chinatown’ originated in the mid-nine- and other visitors to the precinct. Ironically, under imminent threat’ (Wood, 2012). In Lagos (Nigeria),
teenth century, when it was used to by this time many Chinese migrants and the Open City project, conceived and implemented by
refer to Chinese settlements on the west their descendants had become more in-
civil society and academic partners in Nigeria and
Switzerland, examines how space, urban planning and the
coast of North America. These early Chi- tegrated within mainstream society.
natowns functioned as enclaves where
Chinese immigrants – who came in large In the early twenty-first century, economic strategies of urban actors shaped the local experience of
numbers as labourers to escape war and restructuring, urban change, gentrification life. The project aims to ‘identify key opportunities for
poverty in China – clustered to survive and large-scale development threaten urban design directed towards spatial and socio-
life far away from home in a strange, the future of traditional Chinatowns. But economic inclusiveness… and to develop a vision for
and often hostile, new society. Such in a time of rapid urban development, appropriate urban strategies and policies.’1 Across the
Arab States, on the other hand, city authorities are either
urban enclaves emerged all over the the legacy of such areas can be salvaged
world. In Sydney (Australia) they con- by policies which maintain a balance
gregated in the inner city suburb of Hay- between heritage conservation and sus- not empowered to adopt such approaches or display little
market, close to the vegetable markets tainable development. In 2010, the City interest in articulating them, while from the Gulf States a
where many of them worked. of Sydney developed a Chinatown Public disquieting picture emerges of cities that have witnessed
Domain Plan, which was designed to re- a colossal property development boom built on the back
At a time when exclusionary immigration vitalize the neighbourhood and improve of armies of migrant labour (mainly from the Indian sub-
policies against Chinese were pervasive, the quality of the streetscape by activating continent) who are treated in conditions of great inequity.
Chinatowns were often spurned as urban underused streets and lanes while safe-
ghettoes, inhabited by an alien minority. guarding the area’s distinctive character.
At the same time, these areas functioned The Plan’s strategic objective was ‘to re-
as safe havens for generations of Chinese, spect, protect and build on the area’s It is this social diversity, and not just the diversity of
where they could socialize with friends historic links with Chinese culture and buildings and uses, that gives the city its soul.
and family, maintain some of their cultural the Chinese community, together with
traditions, and feel a sense of belonging. the growing influence of other Asian cul- Sharon Zukin, professor of sociology
tures and communities, while recognizing
Over time, attitudes changed and so has the area’s importance to contribute to
the place and meaning of Chinatown. A the vitality and diversity of Sydney as a
CHALLENGES OF CULTURAL
significant shift took place in the 1960s global City’ (City of Sydney, 2010). The
and 70s, when discriminatory policies City commissioned artists to develop
were abandoned and many countries public works that ‘address the social and GOVERNANCE
became more open to cultural pluralism cultural aspects of the area and tell the
and diversity. In Sydney, for example, as stories of the contributions of Asian- How to cope with the cultural needs and expectations of
in other cities, Chinatown was transformed Australian communities to Sydney’. It ex- a super-diverse population and respect its cultural rights?
The most obvious challenge is to cultural institutions such
from a ‘no-go area’ into an icon for mul- emplifies an urban development strategy
ticulturalism and accepted urban ‘differ- which simultaneously leverages cultural
ence’. In 1980, the City Government and heritage to celebrate the city’s contem- as museums, galleries, theatres and libraries, all of which
the local Chinese business community porary cultural diversity, while enhancing were created in very different times for very different
collaborated to erect two Chinese-style the quality of public space. audiences. Museums tend to represent and mirror a
dominant or monolithic culture; or they may simply be
repositories of artefacts that are meaningful for an
‘In between two worlds’, Jason Wing (2013), Chinatown Public Art
educated elite alone. As Elena delgado of the Museo de

Programme, Sydney (Australia) ©Newtown Grafitti/Flickr.com*
América in Madrid (Spain) has put it, ‘as metaphorical

“free zones”, museums must strive to take their place at
the intersections, in those spaces where individuals and
distinct cultural identities can act and interact, transform
and be transformed’ (cited in Wood, 2012). Similar
reasoning applies to the preservation and transmission of
the traditional knowledge and intangible cultural heritage
of different urban communities.
But there is more at stake. How to define a collective ‘we’

in ways that cherish both plural identities and the shared
identity of common citizenship? How to foster the
1
See: https://ng.boell.org/open-city-lagos.
146
C H A P T E R
attitudinal and behavioural changes that are required,
among ‘us’ as well as ‘them’? How well do city authorities
know who is living where, how they live, with whom they
interact and on what terms? How do they create public
space that is conducive to interaction and community-
building? How to better provide ‘third places,’ spaces that
INCLUSIVE CITIES
are neither home nor work, but that make it possible to
gather informally, develop trust, and form associations,
e.g. community gardens, shared roofs, farmers’ markets,
public plazas, libraries, parks, cafés, and roadside seating
(see also Chapters 1 and 7). Indeed ‘cultural diversity
questions arise across the full range of city functions:
from education and housing to libraries and graveyard
provision’ (Wood, 2012). Whilst some cities may have had
decades to adapt to these conditions, others are expected
to make the transition in a matter of years.
CONCLUSION
Although we have provided but a bird’s-eye view on

cultural diversity and the global ‘cityscape’, it is possible
nevertheless to see some key messages emerging. The
first is that the challenge is primarily one of urban
governance. In other words, it requires far more than
merely the administrative or technical functions of
government. It requires a widening of decision-making
processes and ownership in a spirit of partnership among
culturally diverse groups, local government, civil society and
the private sector, at a time when ‘urban dwellers are
creating new platforms for asserting themselves as
important actors – developing new languages, cultural
forms of expression and civic platforms – claiming a space
in a city that would otherwise marginalize and drown out
their voices’ (Kihato et al., 2010). Clearly, then, principles
of cultural equity and recognition need to be embedded in all
city policies and programmes and across a range of contexts
or dimensions (Bennett, 2001). What are these different
contexts and what sorts of principles and measures might
be appropriate?
The first overarching context is that of civic governance,

notably so that the cultural rights of all groups are
adequately recognized. Next, cities need to engage with
the sociocultural dimension, as well as the media context.
Sustained educational efforts are also essential, notably
at school level, in order to develop intercultural
competences before it is too late. The environmental
dimension is also crucial through initiatives such as
community gardens. Finally, last but not least, measures
concerning the economic dimension, in other words for the
promotion of the cultural and creative industries, are also
required.
Taken together, such measures can help ensure multi-

stakeholder city governance that builds cities of concord
and conviviality based upon inclusion, participation and
shared belonging, in which creative diversity can truly
flourish.
147
CHaPTer
3 and TOLERANT SOCIETIES

PEACEFUL
Akumaa Mama Zimbi and the Hikpo Widows Alliance (Ghana)

© REZA/Webistan*
Promoting peaceful and tolerant societies

IN FOCUS
requires that cities safeguard the identities of all

residents and take steps to ensure that everyone
feels safe and included in the city’s planning and
development. IN THIS CHAPTER
Article:
Culture is essential to ensuring social Webber Ndoro. Director, African World Heritage Fund (South
cohesion in urban areas, both in its capacity Africa). Leveraging culture for peaceful, tolerant and socially-
inclusive cities
as a bridge-builder for good relations, and
as a source of identity and reconciliation. Perspectives:
Marie Louise Stig Sørensen, University of Cambridge (UK).
Cultural heritage and creativity can help Cultural heritage and post-conflict sustainable development
Diane E. Davis, Harvard Graduate School of Design (USA). Urban
build identity and pride in communities violence and the challenges to historic preservation: can
where deteriorating urban environments, constraints become opportunities?
increased poverty, inequality and limited
access to services and infrastructure have Case studies:
Timbuktu (Mali). Community-led efforts revive a city’s cultural
incited organized crime and violence. foundations
Baghdad (Iraq). Fragile cities and the human cost of war
Increased human mobility has made cities Mostar (Bosnia and Herzegovina). Rebuilding Mostar Bridge: a
more culturally heterogeneous. Building and symbol of reunification
Medellín (Colombia). Increasing access to culture as a gateway to
sustaining peaceful societies is contingent upon social cohesion and inclusion
respect for cultural diversity. Cape Town (South Africa). Spaces of memory, reconciliation and
citizen engagement
In post-conflict situations, culture can Boxes:
serve as a resource for resilience, recovery, Cultural heritage for social cohesion
peace and reconstruction through mutual Promoting a culture of peace and tolerance in cities
understanding; by contrast, deliberate UNESCO’s action in the field of culture in crisis and conflict
destruction of cultural heritage fuels hatred situations, focusing on the urban setting
148 and extremism.
3
LEVERAGING CULTURE FOR PEACEFUL, TOLERANT
C H A P T E R
AND SOCIALLY-INCLUSIVE CITIES
WEBBER NDORO
Director, African World Heritage Fund (South Africa)
THE ROLE OF CULTURE IN FOSTERING SOCIAL COHESION ANd THEREBY CONTRIBUTING TO THE
SUSTAINABLE dEVELOPMENT OF OUR URBAN ENVIRONMENTS HAS BEEN A SUBJECT OF dEBATE
THROUGH VARIOUS CONFERENCES OVER THE PAST dECAdE (UNESCO, 2013b). dISCUSSIONS HAVE
PEACEFUL AND TOLERANT SOCIETIES

OFTEN STRESSEd THE ECONOMIC ROLE OF CULTURE, PARTICULARLY THE CREATIVE INdUSTRIES IN THE
CREATION OF JOBS ANd ECONOMIC dEVELOPMENT. HOWEVER, WHAT HAS BEEN UNdERESTIMATEd
IS THE ROLE OF CULTURE IN BRINGING ABOUT HARMONY, TOLERANCE ANd SOCIAL COHESION IN OUR
RAPIdLY GROWING URBAN AREAS. AS EVIdENCEd IN CONFLICT-RIddEN CITIES SUCH AS JUBA (SOUTH
SUdAN), OR VIOLENT CRIME-PRONE CITIES LIKE BOGOTá (COLOMBIA), CULTURE HAS THE POTENTIAL
TO FACILITATE PEACE, TOLERANCE ANd SOCIAL COHESION IN THESE RAPIdLY-CHANGING CITIES
(WESSEL, 2009).
T he United Nations Sustainable development Goals CASE STUDY 62 ALGERIA
mark a substantial step forward in that it is the first Timbuktu (Mali)

time that the international development agenda refers
MAURITANIA
Community-led efforts MALI
to culture within its framework. Goal 11 targets cities revive a city’s cultural
and human settlements that are inclusive, safe, resilient foundations NIGER
and sustainable (United Nations, 2015). It alludes to cities BURKINA FASO
as hubs of culture among others such as commerce and Founded in the fifth century, the city UINEA
science. The role of culture in sustainable development of Timbuktu (Mali) became a spiritual centre, home to a pres-
is also reflected in regional frameworks. The European tigious university, and an active hub for trans-Saharan trade
Union’s mid-term growth strategy ‘Europe 2020’ also during the fifteenth and sixteenth centuries. Its three great
aims to create the conditions of more sustainable and
mosques, inscribed on the World Heritage List, and its med-
inclusive growth – the cultural sectors are expected to
ina represent the high points of this urban civilization. The
city’s distinctive construction and maintenance techniques
contribute to these aims (European Commission, 2010). that use a combination of mud and stone have been passed
The African Union in its Agenda 2063 makes it clear that down through generations, and represent a key source of
culture has a critical role to play in the development of intangible heritage. Ancient manuscripts, some of which
the continent (African Union Commission, 2015). In date back to the thirteenth century, have been conserved
discussing Aspiration 4 of Agenda 2063 on a ‘Peaceful and passed down through families and document the his-
and Secure Africa’ the Chairperson of the African tory of Africa across all fields of study.
Union Commission, Nkhosazana Zuma, challenged
professionals to demonstrate how cultural heritage can In 2012, armed groups took control of the city and quickly
play a role in ‘silencing the guns on the African continent’.1 targeted cultural heritage. Fourteen of the sixteen mau-
In the face of cultural heritage being attacked in places
soleums containing the tombs of the saints were destroyed,
like Timbuktu (Mali), Benghazi (Libya), Tunis (Tunisia),
as well as the Al Farouk independence monument. Museums
and libraries were looted, cultural practices were banned
Aleppo (Syrian Arab Republic) and Beirut (Lebanon), it is and some of the ancient manuscripts were burnt. This brutal
pertinent to recognize what culture can achieve in the assault on cultural heritage severely weakened the local
cementing of cordial relationships in our dynamic and population’s cultural practices and social cohesion. To pro-
ever-fluid cities. tect them from destruction, the manuscripts were secretly
moved to Bamako (Mali), illustrating their importance for
The role of cultural heritage in post-conflict situations has local communities.
been documented in many instances (Stanley-Price,
2005). In urban environments cultural heritage plays an After the liberation of the city in February 2013, a wide re-
essential role in maintaining people’s identity, particularly construction and safeguarding programme was put in mo-
in upholding a sense of continuity but also for economic
tion under the aegis of UNESCO, with support from the
potential, income generation and jobs. The Hangzhou
international community. The reconstruction of the 14 mau-
soleums, which was completed in July 2015, signalled the
declaration (UNESCO, 2013c) advocates the role of city’s rebirth. The original shape of the monuments was re-
heritage in transmitting the value and sense of place discovered through in-depth research work and excavations.
from generation to generation and as an incubator for Reconstruction guidelines regarding building dimensions,
creativity. techniques and materials were established together with
owner families and mason groups. Young people were
Urban planning that integrates cultural heritage has been trained by master masons to participate in the reconstruc-
seen as more sustainable, diverse and inclusive. It helps tion, thus fostering the transmission of know-how. In addi-
create green economies that enhance sustainability, tion, a digitization programme for the ancient manuscripts
provide opportunities for employment that help in was established, together with the training of professionals
and manuscript owners in conservation techniques.
1
Opening remarks, seminar ‘Harmonizing Heritage with the African
Union Agenda 2063’, 6 May 2015, Midrand, South Africa
149
poverty alleviation, and has the potential to unite people populations. As recently experienced in Europe and some
in a participatory process to further goals of social cities in Africa (Johannesburg, for example) the influx of
cohesion and peace. For example, the urban gentrification refugees has at times compounded the challenges of the
of Johannesburg (South Africa) through the Maboneng city in terms of social cohesion and peace. In Johannesburg,
project (Nevin, 2014) and that of Monti in Rome (Italy) it resulted in serious xenophobic attacks (2008, 2010 and
(Marinaro and Thomassen, 2014) not only increased 2015). Refugees, just like any migrants, compete for
economic opportunities, but brought communities services and opportunities. While this phenomenon in
together and reduced crime. Europe appears new in a way, it mirrors similar influxes to
Africa and the New World during colonial times. In Africa
at least, the result was segregated cities like Cape Town
(South Africa) and Maputo (Mozambique).
Box 3
CULTURAL HERITAGE FOR

SOCIAL COHESION
The rampant growth of cities has resulted in deteriorating
• Heritage has the power to unite communities urban environments, poverty increase and, particularly
where all citizens associate the historic environment for those living in slums, limited access to the social
with a shared identity, attachment to place and ev- amenities and infrastructure of the city (Hosagrahar et al.,
eryday life, including minorities, disadvantaged and 2015). These conditions in turn create a conducive
socially-excluded persons; environment for urban violence and organized crime.
• Cultural heritage, with its lasting cultural identity

and socio-economic traditions, raises awareness and
TURKEY
CASE STUDY 63
strengthens the pride of citizens in local history and
culture; Baghdad (Iraq) SYRIAN
ARAB
Fragile cities and the human REPUBLIC
ISLAMIC REPUBLIC
OF IRAN
• The mix of public and private spaces found in our cost of war IRAQ
J DAN
cities engenders social cohesiveness and interaction
by providing common spaces for diverse groups to In the current post-conflict period, SAUDI ARABIA
E
interact; Baghdad (Iraq) is faced with high KUWAIT
rates of population displacement,

• Cities are by nature functionally and socially di- poverty, illiteracy, corruption, violence and social fragmen-
verse, supporting a wide range of complementary tation. Demographic shifts over the past 30 years, and par-
activities and embodying multiple cultural values; ticularly since the 1991 embargo, are marked by a high
youth emigration and an outflow of educated professionals.
• Cities are vibrant, convivial and inspiring, and The exodus of the middle class from Baghdad’s city centre
have proved to be supremely adaptable to incremental has contributed to the neglect and deterioration of the urban
fabric, together with the decline in social infrastructure and
and harmonious change. People in a city adapt quickly
services. Since the 1990s, the annual economic growth rate
and can accommodate a variety of other cultures; has dropped by 25%. The city has also witnessed a surge
of large-scale building constructions that benefit from land
• Cultural heritage is valuable to the city’s unique-
and property speculation, and are accelerated by weak
ness and sense of place. It helps attract tourism, em- legislation, which risks destroying the urban scale of the city.
ployment and local investment, fostering the
sustainable development of the city; Baghdad illustrates a layering of influences over centuries
to its modern context, with collectivity underpinning its pro-
• Cultural heritage places are nodes of economic duction and continuation. The city’s diversity, however, for-
activities for the creative industries, generating jobs merly its wealth and strength, is now a factor of insecurity
and harmony. and radicalized division.
Source: Hosagrahar et al., 2016
Mobility and access to the public spaces of the city remains

an issue. The ‘Fardh al-Qanoun’ operation introduced in
CHALLENGES IN FOSTERING PEACEFUL, 2006, which divided Baghdad into secure areas during
TOLERANT AND SOCIALLY-COHESIVE urban violence and made many public spaces impassable,
CITIES has resonated into the current context. Ten years on, the city
is still experiencing physical segregation and social fragmen-
tation, causing decline in the quality of life of its citizens. Vi-
Cities have traditionally grown by attracting people from olence has become a critical, all-pervasive characteristic in
rural areas and from other countries. Migration has been the lives of people throughout Iraq, with civilian casualties
a consistent factor in the evolution of many of our cities. often concentrated in and around Baghdad.
Cities attract people of diverse cultures, religions, Source: ALECSO, report for Study Area 2
languages and nationalities. despite the fact that migration
has been part and parcel of the urban environment for a
long time, most cities are ill-prepared for the influx of these
150
C H A P T E R
Reconstructed Old Bridge of Mostar (Bosnia and Herzegovina)
© Vladislav T. Jirousek/Shutterstock.com*
In today’s cities, cultural heritage is generally enmeshed hotspots, such as Jerusalem and the Mostar Bridge in
in dynamic intercultural processes of social change, Bosnia and Herzegovina, can also be rallying points for
mobility and diversification. In addition to planning reuniting a city (see Case Study 64).
frameworks and environmental constraints, cultural
policies must take into account the various aspirations of
its citizenry. The integration of the past into the
contemporary city is as much a part of urban renewal as CULTURAL HERITAGE AND POST-CONFLICT SUSTAINABLE
it is a part of cultural heritage. Cultural resources are DEVELOPMENT
Marie Louise Stig Sørensen University of Cambridge (United Kingdom of Great
always in the present, with multiple values and voices, and Britain and Northern Ireland)
are ever-changing. They can also help in negotiating
issues such as inequality and discrimination. How are concerns about sustainable de- Secondly, the role of heritage is crucial
velopment and cultural heritage con- to sustaining social and cultural well-
Urban conflicts and violence are often rooted in nected? In particular, what importance being, a core concern for sustainable de-
competing for resources, and heritage sites can become does this link have during post-conflict velopment. Individuals and communities
central points due to their powerful symbolism and the reconstruction and development efforts? develop attachment to place and to the
strong emotions they evoke. during armed conflict, Recent brutal damage to densely occupied particularities of their environment. Finding
heritage sites can become key targets, serving to inflict
areas rich in cultural heritage have made ways of protecting and enhancing such
responding to such questions urgent. relationships is essential for sustainable
emotional and psychological wounds. Cultural places and We need to know more about how to development. If these links are broken,
events can be hotspots of contention. However, these rebuild societies, including the role of society becomes more fragmented and
heritage in such endeavours. communities alienated. Placeness, a sense
C A S E ST U DY 64 of belonging, and rootedness in history
Mostar (Bosnia and Herzegovina) BOSNIA AND
It is too often assumed that there is a - these are qualities that matter, and
Rebuilding Mostar Bridge: a HERZEGOVINA fundamental schism between cultural they are dependent on heritage. These
ROATIA heritage and sustainable development, connections are particularly vital following
symbol of reunification with cultural heritage perceived as a hin- conflict; with a broken link to the past,
drance to development, or a kind of trust in the future is more difficult to de-
The Old Bridge (Stari Most) in Mostar luxury of secondary importance during velop. Heritage is imbued with notions
(Bosnia and Herzegovina) was a renowned historical land- K
rebuilding work. Perceiving the role of of belonging and security, and without
mark before its destruction in 1993 during the war. During heritage like that is counter-productive. such meaningful integration and con-
the 1992-1995 conflict between predominantly Muslim Cultural heritage can be included in de- nections to heritage, the future will be
Bosnians, Catholic Croats and Orthodox Serbs, the sixteenth- velopment in a way that supports and, more fragile.
century bridge became one of the war's most famous casu- indeed, strengthens sustainability and in
alties. On 9 November 1993, artillery hit the bridge's weak certain situations the integration of cultural There are numerous inspired examples
spot from the nearby hills, and the historic icon collapsed heritage is essential to achieving successful of such approaches, but exploring the
into the Neretva River. long-term outcomes. relationship needs to become the rule
rather than the exception. Otherwise,
UNESCO, the World Bank and the City of Mostar launched a Two aspects are particularly important. well-intended investments may fail or
project to rebuild it according to intercultural standards and Firstly, the physical presence (the material, even become counter-productive. More-
the surrounding historic town of Mostar. As much as possi- tangible form) of cultural heritage anchors over, as cultural heritage can be malleable
ble of the original white limestone was salvaged, and new a connection to history and provides the and shaped to suit different needs, sen-
stones were quarried to complete the reconstruction. The conduit for memory. It is this quality that sitivity, insightfulness and care is needed
rebuilding of the Old Bridge was considered a symbol of the underwrites the deliberate destruction of to ensure that the tensions fuelling the
heritage, and is important in historic urban original conflict are not built into rebuilding
reunification of Mostar and integral to the healing process
centres where development can be pulled efforts. For post-conflict rebuilding efforts
for the divided city, as well as a major step towards recon-
in opposite directions by different interest to achieve their aims, they need to inte-
ciliation, tolerance and coexistence in post-war Bosnia and groups. As time resonates through all that grate cultural heritage in a way that en-
Herzegovina. Subsequently, in 2005 the bridge was in- we build, the tangible form of cultural her- sures that heritage is for the betterment
scribed on UNESCO’s World Heritage List, in recognition of itage matters deeply and cannot be removed of the future rather than used to make
its strong symbolic value. without causing harm. This should be ac- claims on the past.
Source: Webber Ndoro, Leveraging culture for peaceful, knowledged when rebuilding communities.
tolerant and socially-inclusive cities
151
The rapid growth of cities has also witnessed the rise of OPPORTUNITIES FOR SHAPING PLURAL
urban violence. The violence in cities like Rio de Janeiro AND TOLERANT CITIES
(Brazil), Johannesburg (South Africa), delhi (India) and
Lagos (Nigeria) can rival that of a war zone. Violence, Cities by and large are economic and social hubs where
including violence against women, erodes social cohesion, inequalities are a daily occurrence. Creating socially
limits mobility and weakens governance by lessening sustainable cities that can accommodate migrants and
citizens’ trust in a city that is unable to protect them. their diversity requires policies that nurture shared
Although violence in urban areas manifests itself in identity and maintain spaces whose use can be shared by
different forms, the net impact is that the sustainability of everybody, promoting pluralism and a culture of
the city becomes threatened and its citizens live in fear. tolerance. Housing projects in Kuala Lumpur (Malaysia)
and Johannesburg (South Africa) have demonstrated how
both the affluent and the poor, different religions and
PERSPECTIVE 21 cultures reside alongside one another and can develop
URBAN VIOLENCE AND THE CHALLENGES TO HISTORIC such social cohesion and tolerance. The emphasis in these
PRESERVATION: CAN CONSTRAINTS BECOME OPPORTUNITIES? housing projects was on shared values and commitment
Diane E. Davis Harvard Graduate School of Design (United States of America) in the recognition of a collective goal or good, while at the
same time allowing the various communities to practise
their cultural beliefs. The projects over the years have
Much of the world’s at-risk historical sustained under the cover of violence,
heritage is found in cities of the Global preservation efforts are further limited.
South. For various reasons, including demonstrated high levels of tolerance and community
colonialism, cities across Latin America, But these constraints can also become cohesion.
the Middle East and South Asia not only opportunities for change, as happened
host significant built environmental and in Mexico City over the past decades.
cultural legacies, they also contain physical Growing rates of violence and the occu- Increasingly, I believe, the voices of civil society are
artefacts and deteriorated sites in dire pation of historic inner city areas by
need of attention. This situation is due
voices for change, where change has been overdue.
various illicit traders had long discouraged
in part to the widespread embrace of both public and private investments. They have been voices of hope for people living in fear.
economic growth at all costs. Historic When Mayor Andrés Manuel López They are voices that can help transform countries of crisis
preservation has been a hard sell in Obrador joined local businessmen in into countries of opportunity. An active civil society is one
countries where economic expansion and tackling the ‘rescue’ of inner city areas,
prosperity are key priorities. Because the linking of built environment recovery
of the most powerful forces in our time, one that will
robust economic development often re- to the reduction of crime bolstered the become an increasingly universal influence.
quires the adoption of strategies that achievement of such aims. Both public
His Highness the Aga Khan
are more capital- than labour-intensive, and private sector actors valued the
formal employment has remained limited historic character of targeted areas, af-
and informality is common. This further firmed by the inscription of Mexico’s his-
poses a dilemma for preservationists be- toric centre on the UNESCO World Heritage
cause informality often flowers in precisely List in 1987. But they also worried about Promoting pluralism and tolerance is only possible
those areas of greatest historical heritage, middle-class abandonment of the centre, through the empowerment and involvement of local
which have been bypassed by investors and the economic impacts on urban com- communities in the decision-making process. The
because of ambiguous property rights or merce and services. Such conditions also Government of Mongolia illustrated the power of
culture by galvanizing support for national development
infrastructural neglect. In recent years, intensified insecurity, to the extent that
authorities have recognized the economic crime, neglect and abandonment rein-
and social value of these areas, including forced the deterioration of inner city by rebuilding a 26-metre-high bronze statue of
for tourism; yet this newfound conscious- buildings and public spaces, leaving Avalokiteśvara, the protector of Mongolia, which had been
ness has created tensions with informal these historic areas to ‘underworld figures, destroyed in the early part of the twentieth-century
sector advocates who decry the prioriti- or persons of few resources’ (Pineda, (Palmer, 2003). despite the advice of aid agencies that the
zation of buildings over livelihoods. 2003). As such, concerns about the dele- project would waste resources, rebuilding the statue after
terious built environmental and social
the collapse of the communist regime united Mongolians
and strengthened pride. By focusing first on the important
Concerns about the ‘museumfication’ of impacts of violence and insecurity in the
historical heritage and debates about historic centre united public and private
what should be conserved are not the actors behind the restoration of much of symbol of their heritage, the government paved the way
only obstacles to preservation efforts. the city’s historical and cultural heritage. for a more inclusive development process.
Equally troubling is the escalation of Today, Mexico City is one of the country’s
urban violence, often in the form of illicit least violent cities, boasting historical In other instances, the role of culture in achieving social
or illegal activities within the historically legacies whose beauty and splendour inclusion among different ethno-cultural groups is through
joint commemorations. It can generate community identity,
significant but dilapidated areas where are visible but do not dwarf the city cen-
informality thrives. When local authorities tre’s vibrant vendor and street life, making
lack the willingness or capacity to uproot its recovered areas a source of national create pride in cultural activities, and play a vital role in
networks of informality that are often pride. developing social cohesion (Newman and McLean, 1998).
When different communities work, live and socialize
separately, the result is the creation of an atmosphere of
mistrust, jealousy and intolerance. To address issues of
segregation, the best solution is to bring together these
parallel lives through promoting cross-cultural contacts,
152
C H A P T E R
establishing a common purpose and developing access cultural assets can contribute to preventing
meaningful interaction or cultural projects like music tensions and confrontation and creating peace. Medellín
festivals or carnivals. The Rio de Janeiro Carnival (Brazil) and Bogotá (Colombia) are two such illustrative cases,

is one such activity which has been able to bring together which have achieved a significant reduction in urban
divided communities in a celebratory move. The example violence and a remarkable renaissance through investing
of Rio has been followed in Johannesburg with the Soweto in culture (see Case Study 65).
Carnival and in Cape Town through the International Jazz
Festival (South Africa). Cultural heritage resources in our cities, if properly
managed, can be instrumental in enhancing social
Cities that acknowledge diversity and promote the ability inclusion, developing intercultural dialogue, shaping
of individuals to participate freely in cultural life and identity, improving quality of the environment, and – on
the economic side – stimulating tourism development,
C A S E ST U DY 65 creating jobs and enhancing the investment climate
(Smidt-Jensen, 2007). In other words, investment in
ANAMA VENEZUELA
(BOLIVARIAN REP
Medellín (Colombia)
cultural heritage can generate return in the form of social
G
Increasing access to culture as

benefits and economic growth, thus contributing to a
COLOMBIA
a gateway to social cohesion
and inclusion ECUADOR
culture of tolerance and peace.
BRAZIL
PERU
Medellín (Colombia) demonstrates that violence prevention It can be argued that the sustainability and the resilience
through well-thought-out cultural projects can work. The ini- of our cities depends very much on how we use culture to
tiatives are the product of political commitments and bold address the challenges of inequality through poverty
leadership sustained over the course of a decade, covering reduction and the inclusion of women, ethnic minorities,
three municipal administrations. From 1991 to 2010, homicide youth and other marginalized groups.
rates in the city dropped by 80%. Despite limited resources,
Medellín has brought about transformative change through
small-scale yet high-impact innovative urban projects tar-
Box 4
geting the city’s social and economic inequalities. PROMOTING A CULTURE OF PEACE AND
TOLERANCE IN CITIES
Medellín city authorities have conceived security as only one
component of a broad social strategy designed to improve • Guaranteeing the freedom of people to be and
social cohesion, inclusion and quality of life. The cultural ini- to live how they choose;
tiatives were designed to complement measures to improve
public transportation and road safety, high-quality education • Providing a sense of belonging, of being part of
infrastructure, provide safe recreational areas, upgrade in- a community, and of maintaining close links to the
frastructure and public services, and increase citizens’ re-
roots and land with which many people identify;
sponsibilities towards their city. The city planning included
the cultural component as part of a holistic approach to • Fostering an environment that is conducive to
urban design and social engineering.
mutual understanding and trust, where diversity is
As part of the city’s efforts to regenerate the neighbourhood acknowledged and respected, and minorities are in-
of Santo Domingo, an area severely deteriorated by urban cluded, leading to more stable and resilient societies;
violence and drug trafficking during the 1980s and 1990s,
the Metrocable cable car system was introduced in 2004, • Acting as a common good to be shared and pro-
helping to connect low-income areas, such as Santo tected, culture provides an ideal entry point for social
Domingo, with the city centre. Reducing social inequalities engagement and cooperation, helping to develop
has been tackled through the regeneration of public spaces. initiatives that bring people together around shared
The library park Parque Biblioteca España was built in 2007 interests, strengthening bonds and increasing the
to enhance the vitality of the Santo Domingo neighbour- social capital of a community.
hood, boost the participation of all citizens in culture, and
Source: UNESCO, 2013a
improve the quality of life of vulnerable communities. Ac-
cessible by Metrocable, the library has created a link be-
tween the different neighbourhoods of the city,
MUSEUMS AND SOCIAL COHESION
strengthening a sense of dignity and belonging in areas that
have not been able to previously benefit from quality public
spaces and cultural services.
Museums around the world have played a major part in
By adopting an inclusive and innovative approach to urban bringing together citizens from different socio-economic
renewal and environments, Medellín has achieved what backgrounds (see also Chapter 2). Many museums have
many cities have struggled to do: create a strong culture of focused on representing multicultural societies and giving
transformation and reduce urban violence. minorities space within national narratives. The Viet Nam
Source: Pontifical Catholic University of Chile, report for Study Area 8/ Museum of Ethnology in Hanoi (Viet Nam), for example,
presents the cultures of more than 50 ethnic groups of
Webber Ndoro, Leveraging culture for peaceful, tolerant and socially-
inclusive cities
153
Palmyra (Syrian Arab Republic)

© Waj/Shutterstock.com*
the country, including traditional architecture, which is on Cities throughout the world face complex issues in
display throughout the museum’s large gardens. The sharing space among citizens of multiple cultures and
museum thus works to promote the value and respect of social backgrounds. despite instances of strife and
diverse minority populations and their contributions to violence, local authorities must accommodate diversity
the Vietnamese nation (UNESCO, 2013a). Museums, and acknowledge it as beneficial to the city. Effective
however, can also risk reinforcing or limiting societal social cohesion reflects an environment in which citizens
roles, and therefore they have extraordinary potential to are able to express themselves as an integral part of a
challenge prejudice and stereotypes. Examples such as group to which they belong. Thus, local authorities’
the district Six Museum in Cape Town (South Africa) planning must take into consideration the diversity of
(see Case Study 64) demonstrate how museums can cultural traditions and practices, which can be shared and
effectively create shared spaces and a sense of belonging. promoted for social cohesion.
CASE STUDY 66
Creative people power regional economic growth Cape Town (South Africa) BOTSWANA
and these people prefer places that are innovative, Spaces of memory, SWAZILAND
NAMIBIA
diverse, and tolerant. reconciliation and citizen
engagement SOUTH AFRICA
LESOTHO
Richard Florida, urban studies theorist
In 1994, the District Six Museum

in Cape Town came into being. It
serves as a remembrance of the events of the apartheid era
CONCLUSION in South Africa, as well as the culture and history of the area
before the forced removals of its residents in the 1960s. The
Cultural resources in cities build a sense of belonging and ground floor of the museum is covered by a large street map
identity among local communities, and promote social of District Six, with handwritten notes from former residents
cohesion, inclusion and equity. The promotion, indicating where their homes had been. Other features of
conservation and celebration of cultural activities are key the museum include old street signs, displays of the histories
elements for an inclusive city, and for improving the
and lives of District Six families, and historical explanations
liveability and sustainability of urban areas. The cultural
of the life of the area and its destruction. In addition to its
function as a museum, it serves as a memorial to a deci-
assets should not be seen as museum pieces or as past mated community and a meeting place and community cen-
relics but should be testimonies to our ability to adapt to tre for Cape Town residents, who identify with its history. It
an ever-changing urban environment. Local authorities also represents the triumph of civil society in segregated
must recognize and celebrate the city’s unique identity, cities, serving as a symbol of reconciliation. Today, former
whose characteristics have been shaped by all who live in residents and their descendants are rebuilding their memo-
it. This will be the foundation of a city’s sustainability and ries and cultural heritage once again in this area.
resilience. Source: Webber Ndoro, Leveraging culture for peaceful,
tolerant and socially-inclusive cities
154
C H A P T E R
Box 5
UNESCO’S ACTION IN THE FIELD OF CULTURE IN CRISIS AND CONFLICT SITUATIONS, FOCUSING ON
THE URBAN SETTING
Culture, in its broader sense including intangible heritage and creative cultural industries, is increasingly affected by situations
of armed conflict throughout the world, often combined with vulnerability to natural hazards. Cities, as the main repositories
of cultural heritage and sources of creativity, have been disproportionally impacted by these phenomena.
Culture and heritage are particularly at risk in a situation of armed conflict, both because of their inherent vulnerability and for
their very high symbolic value. Sometimes, the urban historic environment is simply caught in between belligerent parties or
the victim of pillage and looting at time of chaos and political unrest. The growing number of intra-state conflicts, involving
many non-state actors defining themselves on ethnic/cultural grounds, has moreover meant that the heart of cities, that is their

historic centres, have often become the frontline of wars. This was, for example, the case of Dubrovnik (Croatia) in the 1990s,
and is currently the tragic case of Aleppo (Syrian Arab Republic).
At other times, however, urban heritage is the target of deliberate destruction, with the intention of obliterating the very identity
of individuals and groups, severing their links to the land and breaking the bonds that keep them together as a community, as
happened in 2006 with the blowing up of the Al-Askari Shrine in Samarra (Iraq), and more recently in Timbuktu (Mali) with the
systematic destruction of ancient mausoleums, the burning of ancient manuscripts and the banning of traditional cultural practices.
These destructions, moreover, are accompanied by the persecution of individuals based on their cultural identity as part of a
strategy of ‘cultural cleansing’, rooted in radical religious beliefs. These persecutions, combined with other factors associated
with the conflicts, are driving millions to leave their homes and become refugees and migrants in other cities, often abroad,
where they are frequently perceived as threats, due in part to their alien cultural background.
In addition to the loss of unique records of our past of great historic, aesthetic and scientific value, the impact of conflicts on
culture and heritage deprives communities of the fundamental human right to access, practice and transmit their culture, while
undermining a critical resource to achieve sustainable development. Indeed, the culture, and the cultural landmarks that shape
our cities and landscapes, act as an anchor for spirituality and identity, sustain dignity and strengthen the resilience around
which affected communities can hope to rebuild in times of distress. In a conflict or post-conflict situation, the protection of cul-
tural diversity can contribute to restoring social cohesion and to opening prospects for dialogue and reconciliation. In the longer
term, culture will be essential for social and economic development.
Urban culture is thus at the forefront of conflict as a critical consideration in opposing ways: as a factor fuelling hatred and ex-
tremism, when it is under attack, and as a resource for resilience, recovery, peace and reconstruction, when it is used to promote
mutual understanding. Its protection, and the promotion of a culturally pluralist urban society, is not only a cultural issue, but
increasingly a major humanitarian and security imperative.
Across history, cities have traditionally been places of encounters and sharing, melting pots that - mainly in the name of trade
- brought together different people and facilitated dialogue, exchange and innovation. They have also been built and developed
through centuries of adaptation to the natural and human-made hazards that affected local environments, thus enshrining in
their built fabric, and in their inhabitants, precious traditional knowledge that helped prevent or mitigate disaster risks and
communal tensions.
Today, when culture is misused, targeted or lost as a result of conflicts and disasters, cities risk becoming increasingly places of
violence and vulnerability, where communities will be less resilient and less able to achieve sustainability. Unfortunately, recog-
nition of the role of culture as a key consideration in humanitarian and peacebuilding strategies is still very limited.
Against this background, in November 2015 UNESCO adopted a new strategy for the protection of culture and the promotion
of cultural pluralism in the event of armed conflict. This strategy aims to strengthen the ability of Member States to prevent,
mitigate and recover the loss of cultural heritage and diversity as a result of conflict, by developing institutional and professional
capacities for reinforced protection.
It will do this through a new approach and set of tools, which are being elaborated in response to the unprecedented challenges
facing the international community. The key element of this new approach will be the incorporation of the protection of culture
into humanitarian action, security strategies and peace-building processes by engaging with relevant stakeholders outside the
culture domain.
Areas currently being explored include the systematic mainstreaming of culture in UN peacekeeping operations, building on
the positive experience of Mali, where UNESCO was able to restore 14 of the 16 mausoleums destroyed by radical extremists,
thanks to the support of the United Nations Multidimensional Integrated Stabilization Mission in Mali (MINUSMA). This will in-
volve the provision of cultural heritage protection training by UNESCO to UN peacekeepers and other militaries, the sharing of
information and, when relevant, cooperation on the evacuation of cultural properties at risk.
On the humanitarian side, UNESCO will strengthen its cooperation with actors such as the International Committee of the Red
Cross (ICRC) and the Office of the United Nations High Commissioner for Refugees (UNHCR), to ensure that a cultural component
is integrated in their policies and programmes on the ground, notably within cities. For example, cooperation is already ongoing
in Aleppo with the International Organization for Migration (IOM).
To strengthen the human rights and judiciary dimensions, UNESCO will work with the United Nations Human Rights Council
and the International Criminal Court (ICC) to help monitoring and prosecuting violations of human rights and war crimes. This
will require considerable work at policy level, as crimes against culture are currently not given adequate consideration in human
rights instruments and penal provisions. An important precedent, however, was established when UNESCO helped the ICC indict
an individual suspected of intentionally destroying cultural heritage assets in the city of Timbuktu.
Source: UNESCO, 2015e
155
CHaPTer
4 and INNOVATIVE CITIES CREATIVE
Vivid Sydney Festival, 2013, Sydney (Australia)

© Luckies/Shutterstock.com*
IN FOCUS
Promoting creativity and innovation,

including digital technologies, in cities builds
on human ingenuity and diversity as a resource IN THIS CHAPTER
for urban development and improving the
Article:
liveability of cities. Charles Landry, urban advisor and writer, founder of Comedia
(UK). Culture and the digital city: its impact and influence
Digital technology is a revolutionary force
that is shaping how people produce, consume Perspective:
Paulo Alexandre Barbosa, Mayor of Santos (Brazil). Focusing on
and experience culture, but also a force that film for urban development
needs an ethical anchor.
Case studies:
Innovation can support decision-makers Nairobi (Kenya). Mapping the informal public transport system
UNESCO/UNITAR. Employing digital imaging tools for the
to shape cities differently, deepen democracy protection and preservation of cultural heritage
and empower citizens and their involvement Shanghai (China). Banking on creative infrastructure to stimulate
in governance. urban growth
São Paulo and Curitiba (Brazil). A platform for citizen-to-
government engagement
Policy priorities should ensure public Dubai (UAE). Building a virtual community to share creativity
access, fairness, cultural diversity, transparency
and the right to privacy. Box:
Unlocking the creative potential of cities
156
4
CULTURE AND THE DIGITAL CITY: ITS IMPACT
C H A P T E R
AND INFLUENCE
CHARLES LANDRY
Urban advisor and writer, founder of Comedia (United Kingdom of Great Britain and Northern Ireland)
OUR CULTURE IS dIGITAL ANd THE dIGITAL SHAPES OUR CULTURE. IT IS OMNIPRESENT, LIKE THE AIR
WE BREATHE ANd THE ELECTRICITY THAT FLOWS. IT SHIFTS PEOPLE’S UNdERSTANdING OF TIME, SPACE
ANd PLACE. A dRAMATIC TRANSFORMATION IS UNdERWAY WITH THE dIGITIZEd CITY ALREAdY WITH
CREATIVE AND INNOVATIVE CITIES

US, BOTH IN THE MORE ANd LESS dEVELOPEd WORLd. YET IT NEEdS A JOINTLY CREATEd CULTURAL
VISION OF WHERE NEXT. THE dIGITAL PHENOMENON IS GLOBAL. CITIES FROM HELSINKI (FINLANd),
AMSTERdAM (NETHERLANdS), SAN FRANCISCO ANd BOSTON (USA) TO NAIROBI (KENYA), ACCRA
(GHANA) ANd INdIA’S ‘SMART CITIES’ ARE GRASPING THE OPPORTUNITIES, WITH MANY CHINESE ANd
SOUTH AMERICAN CITIES FOLLOWING IN THEIR WAKE.
THE 2030 AGENDA AND THE DIGITAL AGE Box 6
UNLOCKING THE CREATIVE POTENTIAL OF CITIES

The digital is relevant to every goal of the 2030 Agenda
for Sustainable development. devices can help monitor
health. Sensors can measure and help reduce resource Creativity and innovation have become a powerful transformative
use such as water, energy or consumption patterns. force in the world today. Their potential for development is vast and
digital tools can help us to understand the world’s natural waiting to be unlocked. The creative economy is one of the most
environments and make our physical infrastructures rapidly growing sectors of the world economy, not just in terms of
safer, more reliable and effective. The internet can income generation but also for job creation and export earnings.
empower people by giving access to a vast knowledge But this is not all there is to it. A much greater proportion of the
store. world’s intellectual and creative resources is now being invested in
the culture-based industries, whose largely intangible outputs are
Applications are increasing exponentially both in the as ‘real’ and substantial as those of other industries. Human cre-
developed and developing world. In the latter, cheap ativity and innovation, at both the individual and group level, are
smartphones are a diagnostic tool to check many health the key drivers of these industries, and have become the true wealth
conditions; the collapsible Luci Solar Lanterns give light of nations in the twenty-first century. Indirectly, culture increasingly
at night; the Lifestraw sophisticated water filters kill 99% underpins the ways in which people everywhere understand the
of bacteria; the BRCK battery-powered modems give world, see their place in it, affirm their human rights, and forge pro-
access to the internet; Hello Tractor low-cost smart ductive relationships with others.
tractors with GPS antennas can track soil conditions; the
Power Pot portable electric generator doubles up as a Activities classified as cultural industries uncover the increasingly
cooking pot, also generating electricity involved in the symbiotic relationships between culture, economy and place. The
cooking process. emancipatory social potential of the latter is implicit in their very
constitution and the wellspring of expression is itself a means to
forms of liberation. In a recent variant of creative economy thinking,
A TECTONIC SHIFT some argue that the cultural and creative industries not only drive
growth through the creation of value, but have also become key el-
digitization represents a tectonic shift, whose devices ements of the innovation system of the entire economy. According
with their disruptive potential are changing cities, society to this viewpoint, their primary significance stems not only from the
and social life, connectivity, the economy, cultural contribution of creative industries to economic value, but also from
institutions and cultural life. Its impacts and influence will the ways in which they stimulate the emergence of new ideas or
be as powerful as the climatic changes that swept through technologies, and the processes of transformative change.
our world with the Industrial Revolution 200 years ago,
yet it is more invisible, driven by algorithms etched into Today, up to three-quarters of all economic activity occurs in cities.
small screens. This engenders fear of a world racing ahead Indeed, creativity and innovation have always been located and
uncontrolled but creates excitement around the nurtured in urban settings, generally large metropolitan areas. It is
opportunities unfolding. Those who make decisions, the at this level that new development pathways are being sought. In
digital settlers, have mostly migrated into this world, many countries, communities and municipalities are therefore acting
whereas for the young digital natives, it is all they know. more quickly and effectively than national institutions in supporting
This highlights a misalignment as, for the first time in creative industries, as well as empowering them to assume a role
history, the young are teaching the old rather than the in the formulation and practical implementation of development
reverse. strategies. Local creative economies are highly diverse and multi-
faceted. They are emerging across the world from many distinct
Every new means of production changes the physical and path-dependent and situated contexts, where different institutions,
mental landscape and how our systems operate. Its actors and flows of people and resources shape a range of different
drama is clear when the world’s largest taxi company, opportunities.
Uber, owns no taxis; when Facebook, the world’s most
Source: UNESCO and UNDP, 2013
157
popular media-owner, creates no content; when Alibaba, technologies working together. Here, mobile devices and
the most valuable retailer, has no inventory; and when apps extend capabilities, the cloud acts as an outsourced
Airbnb, the world’s largest hotel chain, owns no hotels. mechanism, big data enables ultra-fast analysis to interpret
data and gain insights, and social technologies bring
P E R S P E C T I V E 22 interactive human dimensions into digital, automated
processes. Combining these disparate technologies
FOCUSING ON FILM FOR URBAN DEVELOPMENT
Paulo Alexandre Barbosa Mayor of Santos (Brazil) simplifies working environments and is turbocharging
digital commerce, information analytics and the
Santos City has leveraged the creative change among youth, generating vitality development of intelligent infrastructures. The scope,
economy as a strategic factor of the city’s and confidence and enabling them to scale, pervasiveness, ubiquity and speed of evolving
technologies is astonishing. There are now 2.5 billion
social and economic development. imagine, aspire to and shape alternative
futures.
In the field of film, the city has built on internet users around the world, interacting at its simplest
its various natural and historical settings In line with the people-centred develop- by texting messages and with more complexity by
for film production, all of them accessible ment of Santos City, the city invests in managing household electronic devices from a distance.
through the Santos Film Commission. cultural centres located in marginalized
Film has contributed greatly to the city’s neighbourhoods to stimulate cultural
economic development, counting an access for vulnerable groups. ‘Creative CONNECTIVITY AND DATA: A NEW FORM
estimated 1,500 permanent employees,
16 film production companies, 5 cinema
Vila' offers workshops in arts, gastronomy
and music, as well as film and literature
OF CAPITAL
collectives, an annual average of 50 film activities. The city has four Creative Vilas
shoots, and close to US$2.5 million in focused on different vulnerable groups The three big game-changers supplanting material
annual revenue. Santos City also hosts that provide platforms for building social resources, finance or location are big data, the Internet of
the short film festival Curta Santos, which and political capacities, and nurture a Things and intelligent objects. The cultural landscape on
has been held annually for 15 years and sense of cultural belonging and place. rare occasions is sucked in by the gravitational pull of
receives more than 1,000 short films for The Creative Vilas are not only venues dynamic technologies and the ideas they engender -
digitization is one. It is the dominant cultural force of the
each edition. The city also hosts a com- for training and production of cultural
munity cinema programme that offers goods, but provide safe spaces for people
open-air film screenings in disadvantaged to interact with one another and enjoy twenty-first century, twisting everything into its orbit. A
neighbourhoods to encourage participa- culture. They have been successful expe- paradigm shift, it shapes the world in its image, affecting
tion in cultural life and social cohesion. riences that have improved individual all forms of culture and art: how words and texts are
self-esteem, quality of life, and have em- written, used and placed, such as in the world of Web 2.0,
Furthermore, Querô Institute, a civil society powered people by giving them the ca- blogs, chat rooms, message boards, of Wikipedia,
organization, aims to promote social in- pacity to take ownership of their lives. Facebook or Twitter.
clusion and a wider participation in While the processes are slow and persis-
cultural life for vulnerable and disen- tence is required, experience shows that
franchised youth. Each year, 60 participants change is possible. There are six Creative The interactive, immersive force of digital technologies
are trained in audiovisual skills such as Vilas currently under construction. allows us to make art and artefacts in new ways and to
scriptwriting, film directing, lighting and experience culture creating vast opportunities for
photography, which the Institute com- The largest urban transformation takes museums, galleries or performance spaces in different
plements through courses on gender place through people, and the different ways, to communicate and interpret, or for heritage
sites to be imagined. The capacity to simulate and virtualize
equality and community capacity-building, cultural languages are the way to reach
experience is one of the most crucial topics in contem-
and internships. The Institute’s film pro- them. Our experiences have demon-
ductions have won 48 awards at national strated that culture and creativity are
and international festivals. The most im- powerful pathways to social and eco- porary culture— a mental and social transformation
portant impact has been the transformative nomic development. created by our new electronic environment that blends
and mixes the ‘virtual’ and ‘real’. Simulated products,
services and augmented reality experiences are extending
everywhere, even creating virtual social networks,
relationships and feelings.
A DATA-DRENCHED WORLD
digitization and its power to connect, communicate and

At the turning point between the twentieth century
manipulate data is driving transformation on a scale that
changes the foundations of business and public service
and the twenty-first, a new kind of economy is coming
affecting every facet of our lives. This data mining into being, and a new kind of society, and a new kind of
revolution is an innovation accelerator, a Gutenberg 3.0, city: some might say no city at all, the end of the city as
transforming how we work, manage and organize, what we have known it, but they will doubtless prove wrong.
we do, and how we create and think. digitally-driven tools The driver, as so many times before in this long history, is
and technologies shape the cultures we produce, technology: this time, information technology.
consume and how we experience the world.
Peter Hall, town planner, urbanist and geographer
The digital rides on its third platform, a combination of
cloud computing, mobile devices, social media and big data
158
C H A P T E R
La Boca, Buenos Aires (Argentina)
© sunsinger/Shutterstock.com*
Here, technology is like oxygen and is increasingly easy to CASE STUDY 67 SOUTH ETHIOPIA
use. Unavoidably, we are pulled into its thrall with its fluid,
SUDAN
malleable, remixed content, where we graze (the digital

Nairobi (Kenya) S
UGANDA
form we once called browsing) and dive deep with its

Mapping the informal public KENYA
permeable boundaries seamlessly sliding into endlessness.

transport system
The watchwords are open, flexible, interactive, co-creative, The surge of the mobile apps market in UNITED
agile, connective, instant, immersive, ubiquitous, enabling,
REPUBLIC
OF TANZANIA
Kenya has revolutionized the way people

sharing, integrative, multitasking, simulated, virtual, interact with urban information and services, which has pro-
fragmenting and constantly online. vided new transport solutions and the opportunity for users
to contribute directly with real-time information. In Nairobi,
the project Digital Matatus is harnessing smartphone tech-
REDESIGNING AND REVERSE nology to boost the efficiency of the existing informal trans-
ENGINEERING THE WORLD port system and support citizens to better plan their
transport routes around the Kenyan capital. Matatus are pri-
We are in the midst of redesigning the world and all its
vately-owned minivans that are used by an estimated 70%
systems – legal, moral, political and economic – and
of the city’s population to get around. Researchers from the
University of Nairobi, Massachusetts Institute of Technology
infrastructures for a digital age with ICTs as one backbone. (MIT), Colombia University, and Groupshot Design Consul-
This project has immense cultural implications. Yet our tancy collaborated in developing Digital Matatus in response
built environment has been designed for how we lived and to the lack of available data on the more than 140 informal
worked 50 years ago and more. To adapt to the digital age, transport routes in operation throughout Nairobi. Through
a reverse engineering process is necessary to create new smartphone applications, users capture transit data, which
intelligent infrastructures, sensing technologies and is then translated into physical and digital maps and up-
objects that live within its hard-engineered fabric. This is loaded to Google Maps.
The Internet of Things that allows urban objects to
communicate, from fridges to dog collars, adding to our The initiative is part of a recent wave of digital advances in
vast data mountains. This is big data and only a tiny fraction
Kenya that have come off the back of the government ini-
has been tapped to enable algorithms to interpret the
tiative in 2009 to introduce low-cost and faster cable-sup-
ported broadband internet. A burgeoning technological
chaos. Sensors help cities respond in smart ways from the services sector and the arrival of affordable mobile phones
simple to the complex: when is the next bus or metro with web access has meant that many Kenyans now connect
coming, where is a free car parking space? More to the internet via mobiles. Today, around 40% of Nairobi’s
powerfully, we can control how a city works from a population are smartphone users.
distance, or with apps that help the sighted and the visually Source: http://www.digitalmatatus.com/
impaired to find where they are, or self-regulating
mechanisms to control energy use, monitor levels of
pollution or adjust light levels. The ‘sharing economy’
becomes possible, built around sharing human and physical PLACING HUMAN VALUES CENTRE STAGE
resources. Innumerable apps foster swapping, exchanging
or joint purchasing with car-sharing technology, such as A human perspective should drive technologies rather
ZipCars. Opening data creates easier feedback loops than the reverse. Technology fever and innovative apps
between citizens and city decision-makers, helping to make one forget that it enables and is a servant to our
reinvigorate local democracy and making collaborative bigger aims, such as encouraging more empowered
governance models possible. Perhaps ‘the city is software’, citizens. Crucially, the innovative impulses unleashed
as its operations are completely software-driven. The ‘open should solve old problems with new possibilities for the
source’ movement has accelerated the digital world, economy, such as addressing inequality or creating quality
enabling collaborative activities between disciplines and jobs.
to break silos.
159
decision-makers have a once-in-a-lifetime opportunity to CASE STUDY 68

rebuild our cities differently, including harnessing social
media capabilities, interactive platforms or open data to
UNESCO/UNITAR
Employing digital imaging tools for the
deepen democracy, so making it more responsive to
protection and preservation of cultural heritage
peoples’ desires and needs. The crucial question is: will
the public interest be given centre stage? Cities must In the face of devastating natural disasters and unprece-
remain alert to ensure their priorities and values are dented attacks on cultural heritage, digital imaging tools
acknowledged, as the digital industrial complex has have proven essential for assessing damage and planning
discovered the city as a major new market. Crucially, we for recovery. As part of a partnership between UNESCO and
should not only talk about new hardware infrastructures the United Nations Institute for Training and Research (UNI-
but also of empowering people to be ‘smart citizens’. TAR), satellite images developed through UNITAR’s UNOSAT
programme have been increasingly used to evaluate at-risk
Undeniably, untold promises and opportunities to improve sites in Iraq, the Syrian Arab Republic, Yemen and Nepal.
our quality of life are possible by making life more citizen- These images are often the only means of assessing damage
centric, more local, more convenient or efficient and
to inaccessible properties. For example, satellite imagery
was used to determine the scale of the destruction of historic
seamlessly connected. As with all new technologies, these temples and monuments of the World Heritage property,
positives mesh with dangers. They are both liberating and Kathmandu Valley (Nepal), following the earthquake of April
potentially invasive. The most pressing threats include 2015, allowing experts to assess the damage and plan for
control by algorithms or the watchful eye of surveillance, the recovery.
suffering overload from constant data cascading over us, Prepared by UNESCO
or unemployment created by intelligent robots.
The communications revolution has broken the public anywhere’ phenomenon changes how we interact in
sector data monopoly, as everyone has access to knowl- space, place and time. Yet place matters more than ever,
edge on their devices. The digital unleashes the ability to in spite of increased virtual interaction, as people need
mobilize opinion and movements, of which the Arab physical place to anchor themselves. The public realm
Spring, the Occupy movement, Five Star Movement in rises dramatically in importance and as working patterns
Italy, and Podemos in Spain are examples. Tactical urban- change, gathering places and especially third spaces have
ism projects, such as ‘parking day’, ‘restaurant day’, ‘better renewed relevance. This sensorized city largely looks the
block’ or ‘guerrilla gardening’ stem from the same ethos. same, but operates and performs differently. Think of
Social media-savvy, they enable citizens to unite while not how Airbnb, Zipcar, Uber, Lyft or Bridj have re-conceived
meeting physically. They change how the city and citizens hospitality or urban mobility.
communicate and make decisions - these are the radical
civics in action. This harnesses community intelligence This city communicates through every fibre of its being.
whereas, historically, community responsibilities were It is dynamic: signs move, billboards tell stories, info
outsourced to public administrations, which were service boards inform. It has a filmic quality; you sense you are
production engines. This implies a culture shift with trans- floating. Yet the buildings still have solidity. Serendipity is
parency permeating the culture. consciously orchestrated as meeting places and third
places grow, strengthening connectivity. This changes our
work environment, with portfolio working becoming
THE URBAN EXPERIENCE more dominant.
There is a seductive quality to this digitized city. It draws The digitized cityscape enables global brands to dominate
you softly into its interactive web where with a swipe and our sensescape and visual experience. This has emotional
a click you can be gratified – mostly instantly. Here is and psychological effects on urban dwellers given the
ubiquitous Wi-Fi, where we move easily between the dangers of sense overload and overstimulation. Some cities
worlds of ‘here and there’, that is local, global, physically like São Paolo (Brazil), Paris (France) and Tokyo (Japan)
real and virtual. Mobile devices provide mobility so we can are now seeking to control this proliferation in the public
work on the fly, be up-to-date and where our vast library interest. Increasingly, artists are engaged to create the
of the internet provides untold knowledge resources. installations and events that generate this urban
Every social group is participating, yet those operating ‘on experience. We see buildings transform, occasionally with
the move’ remain the minority, although bus and truck sudden subversive, temporary elements to keep public
drivers, nurses, shop staff, dentists, museum attendants attention. This urban branding process has special power
or construction workers also have digital resources. at night. Public entities struggle to compete in projecting
useful information from transport timetables, pollution
The volume, velocity and variety of instantly available monitoring, weather conditions, events or alerts.
data streams combined with the ‘anytime, anyplace,
160
C H A P T E R
Festigraff festival, Dakar (Senegal)
© Victoria Okoye
C A S E ST U DY 69 were criticized as they did not initially focus on citizen

engagement. This apparent free-for-all digital landscape
MONGOLIA
DEM
Shanghai (China)
is largely patrolled by what Hill (2013) calls the ‘Urban
PEOP
OF K
REPUBL
Banking on creative OF KORE
Intelligence Industrial Complex’ led by IBM, Cisco, Gen-

J
CHINA
infrastructure to stimulate
urban growth
HUTAN
eral Electric, Siemens, Philips and search engines like
Google or Yahoo.
LADESH
MYANMAR VIET NAM
Shanghai (China) is a cosmopolitan, entrepreneurial

metropolis; a megacity of over 24 million urban residents. The ‘smart’ word is unreliable and in danger of over-use.
The cultural and creative industries have become central to Becoming smarter means different things to different
the city’s growth and urban branding. Shanghai joined the cities, but there can be no smart city without smart
UNESCO Creative Cities Network as a City of Design in 2010. citizens.
The city excels in design categories, ranging from industrial
product design to jewellery design, and various design Smarter cities are inclusive places that use technology
events are regularly held in Shanghai. and innovation to empower, engage with and capitalise
on citizen participation. Engaging citizens goes beyond
the uptake of technology: it extends to co-creating
The creative industries provide significant economic divi-
dends for the city, generated by 7.4% of the city’s residents
employed in the creative industries. The city boasts the ideas and solutions by encouraging new governance
largest area of creative clusters in the world, two-thirds of and transparency tools such as living labs, integrating
which have been built through the urban regeneration of citizen input in urban planning with spaces and
abandoned factories and warehouses. In 2004, Shanghai support for start-ups. Successful smart cities facilitate
became the first mainland Chinese city to produce a formal this participation, co-creation and co-production with
policy on cultural and creative industries (CCI) and in 2009, citizens and other local partners. (Eurocities, 2015)
the national policy documents adopted CCI discourse. Four
years later, Shanghai was home to 87 creative clusters, over Eindhoven’s intelligent lighting strategy, for instance,
4,000 design-related agencies and institutions, 283 art in- creates responsive streets that help dementia patients
through innovative aids. Amsterdam’s ‘social sensing on
stitutions, 239 art and cultural community centres, 100 mu-
demand’ allows citizens to provide feedback on
seums, 25 libraries and 743 archive institutions.
From a policy perspective, the surge of creative clusters has emerging conditions from potential flooding to broken
developed new cultural infrastructure and institutions, fu- pavements as do Curitiba’s water depollution devices.
elling economic growth and feeding into the burgeoning Barcelona’s ‘smart bins’ project helps garbage trucks to
image of Shanghai as a global cultural city. A key issue for only pick up full bins as sensors communicate to drivers.
the development of the cultural and creative industries will
be in balancing ‘hardware’ with ‘software’, to enable the
full development of creativity and expression.
Source: WHITR-AP, report for Study Area 6 Great cities are defined by their culture. They are
defined by their history – through their local heritage,
museums and archives, historic buildings, festivals, food
and local traditions. But a great city is also defined by its
THE ‘SMART CITY’
contemporary culture – its artists and arts venues, film
and television, music and games, photography and crafts,
The ‘smart city’ notion has a powerful rhetoric and fashion and design, and its buzzing informal offering from
involves using information and communication capacities skate parks to restaurants, pubs and night clubs.
to increase performance and reduce resource use. It was Greater London Authority
initially promoted by big tech companies who identified
the city as a major market and bulk purchaser of products
and services in order to make life more convenient, effi-
cient, secure, self-regulating and predictable. Companies
161
THE SOCIAL AND THE SHARED These are essential for community-building - communal
yet homely but always with free Wi-Fi. Greater
Every medium of communication changes the city and connectivity and faster internet have liberated people to
how we interact with it. Each transformation has work from home as telecommuters or on the move. Third
increased sociability with the ability to catch a train, drive places are key as welcoming, accessible spaces. There is
a car or make a phone call. It has not declined with the power in being alone together. The collective urban
increased options offered by the internet and social experience will take on added importance in the future.
media. The issue is the quality of interaction. does online With fragmented communication channels as the norm, a
social life, catalysed by permanent connectivity, culture of festivals and spectacular events which are
complement our offline world by enriching our overall life artistically driven, form an increasingly significant part of
experience or replace it, leading to some loss? urban culture. Third places exist too in the virtual realm
Communication in the flesh gives us the physical and with online communities, whose qualities mirror those of
emotional contact that we need. physical communities and where relative freedom from
social status is a bonus.
The desire for community has not changed; what has
changed is how it is expressed - less bound in the fixed There is a genetic basis to our tendency to be social and
physical spaces of traditional community limited to family the addictive qualities of increasingly visually-driven
and a few outsiders. Our more nomadic life allows us to social media. The world is dramatically transforming from
affiliate and identify ourselves in multiple ways, defined the dominance of word- and text-based communication
more by - and embedded in - our networks than classic to the visual, with scientists highlighting the ‘picture
bonds. Networks define community in a nomadic world. superiority effect’. Advances in pattern recognition
The downside is the negative networks where software linked to artificial intelligence and self-learning
undesirables can find each other more easily. systems make manipulating the visual easier. This explains
the rise in image-based social media platforms and the
CASE STUDY 70 UELA GUYANA
SURINAME
power of infographics - a merger of visuals and text.
São Paulo and Curitiba (Brazil)
The internet engages us in untold worlds, but can
A platform for citizen-to-
encroach and invade, creating cognitive overload and
government engagement in BRAZIL breaking concentration, fragmenting attention and
Brazil
disconnecting us from life. Storytelling is then a powerful
OLIVIA
( ONAL
S TE OF)
Colab is a mobile app that uses social

PARAGUAY
tool that puts the whole brain to work, stimulating a
networking as a tool to encourage RGENTINA desire to connect threads and narrate a causal sequence
transparency and collaboration for improvedU city manage- of events. Staying centred in a tech-saturated world is no
ment. It was created by five young Brazilian entrepreneurs easy feat.
as a platform to facilitate communication channels between
civil society and governments. Colab promotes connections MEASURING THE URBAN DIGITAL
between citizens and encourages civic participation in mak- ECOSYSTEM
ing positive changes to the city. The app allows citizens to
Measuring digital capabilities is not conceptually different
report on problems, for example safety, public lighting or
from good management sense, such as assessing
parking, through uploaded photographs with geolocation
that are shared with other users who can provide sugges-
tions for addressing them. With the registered complaint, readiness, human capacities and performance. More
city authorities can respond directly to any claim, forward specifically, we need digital city governance, ubiquitous
requests to the appropriate teams for action, and monitor city networks, the ability to leverage urban data or to
their status. The app is currently being used in several mu- foster digital services capabilities, digital access and skills
nicipalities in Brazil, including São Paulo and Curitiba. proficiency and finally behaviour change as dublin’s
Source: http://www.colab.re/ digital Masterplan stated (dublin City Council, 2013).
The strong correlation between e-skills and competitive-

In this shifting landscape, place matters as it provides ness means cities must systematically transform their
anchorage, belonging, opportunity, connection and, education systems, as approximately 90% of jobs require
ideally, inspiration. Here online and offline, cyberspace ICT skills. However, digital literacy needs to encourage
and local space combine to make identity, shape interests not only functional ICT skills but richer cultural learnings
and generate a meaningful life. This manifests itself in how to adapt to the digital world and to understand its pitfalls.
cities work, are designed and navigated. The public realm,
from pavements to benches, pocket parks and well-
designed covered areas, rises dramatically in importance
as do third places, like informal cafés (Oldenburg, 1999).
162
C H A P T E R
‘Cloud Cities’ by Tomás Saraceno (2011), Hamburger
Bahnhof - Museum für Gegenwart, Berlin (Germany)
© Neil H/ Flickr.com*
CONCLUSION
Q
C A S E ST U DY 7 1 ISLAMIC REPUBLIC
KUWAIT OF IRAN
Dubai (United Arab Emirates)

digital technology is a revolutionary force and it needs a
Manama BAHRAIN
E QATAR
Building a virtual community
to share creativity
SAUDI ARABIA UNITED ARAB
EMIRATES
guiding picture of what we want from its power as citizens
OMAN
and cities. This needs an ethical anchor to guide politics,
policies and investment, which should be about solving
S
In the constantly evolving, multicultural

city of Dubai (United Arab Emirates), culture, creativity and the global and local problems that really matter.
innovation play a pivotal role. Creatopia is a dynamic online
initiative powered by the Dubai Culture and Arts Authority To keep the best of this innovation dynamic requires
and the Dubai Government to build a virtual community for policy priorities within a governance and incentives
creative entrepreneurs around the world. Creatopia shines framework that harmonizes fairness, transparency, public
a light on emerging creative talents and gives them a vibrant access and the right to privacy. This balancing act must
navigate between sanctioning, enabling and supporting
marketplace to showcase their creativity in virtual galleries,
and containing, curtailing and controlling. It includes
sell their work and find likeminded mentors. ‘Creatopians’
can interact, share, comment on, and follow other Creatopi-
ans and entities, as well as apply for opportunities. It pro- safeguarding privacy and allowing people to manage their
vides the creative community, anywhere in the world, to be own data; to be continually aware of balancing public and
part of an ongoing cultural dialogue. private benefits; to foster a new civic culture to be co-
creative; to create rules and codes for the sensorized city,
The portal is a catalyst and a conduit by which to grow and the city of interactive surfaces and immersive digital
share creative ideas with peers as well as procurement environments, creating a mixed partnership ‘thinking
teams in Government entities and the private sector. It is brain’ with an agile organizational form that learns to
also a portal to encourage engagement and inspire talents understand weak signals on the horizon and, perhaps
within the region through one unifying platform that con- most importantly, to instigate a dramatic digital literacy
programme.
nects the creative community. In doing so, it enhances
Dubai’s cultural identity and positions it as a new global
centre for creativity.
Since its launch in November 2015, Creatopia has developed

a growing creative community of around 1,700 Creatopians
with more than 1,000 published projects. Creatopia works
to partner with other entities and initiatives, and has be-
come woven within the creative fabric of Dubai’s digital plat-
forms, evolving with the trends and the demands of its
creative ecosystem. Through an open spirit of collaboration,
this will strengthen the culture and arts community and
boost the creative economy.
Prepared by Dubai Culture and Arts Authority (DCAA)
163
164
SECTION B
ENVIRONMENT
Improving the quality
of the built and
natural
environment
through culture
Tradition is not the worship

of ashes, but the preservation of fire.
165
© ver0nicka/Shutterstock.com*
S
ince the 1960s, UNeSCO has In parallel with the development of The pace of urbanization has dra-
spearheaded the establishment the key cultural heritage conserva- matically increased in recent years
of a set of important policy tion charters established by the and, while the trend is global in nature,
frameworks, which have gradually International Council on Monuments it is particularly marked in some re-
come to shape a system of interna- and Sites (ICOMOS), UNeSCO has gions of the world, not least in asia
tionally accepted policies for the con- contributed to the evolution of the and africa, where new megalopolises
servation of the built environment, concepts and practice of urban have already formed or are under
landscapes and nature. These have heritage management and conser- formation. It is because of these
ranged from monuments and archae- vation. important, historical changes that
ological sites to entire historic cities UNeSCO has worked to place the
such as Venice (Italy), Sana’a (yemen), Changes in the economic, demo- conservation of heritage in the
Kathmandu (Nepal), Havana (Cuba) graphic and social processes that framework of the 2030 agenda for
and Fez (Morocco). have characterized the world over Sustainable development and the
the past 30 years, however, have sig- New Urban agenda agreed upon at
The earliest framework was pro- nificantly altered the policy scenarios Habitat III.
vided by the 1962 UNeSCO in this field. While increased resources
recommendation concerning the have been channelled by public and The awareness of the limits of urban
Safeguarding of the Beauty and private actors to heritage conserva- heritage conservation policies in-
Character of Landscapes and Sites, a tion policies, pressures have also inherited from the past has prompted
far-sighted document that focused creased, which have often threatened a redefinition of the guiding principles
the attention of the international the very survival of urban heritage, for urban conservation. In 2011, after
community on the potential conse- or have radically changed its social several years of reflection and dis-
quences of spoiling not only the and economic functions. cussion, UNeSCO adopted the
natural beauty of places, but also recommendation on the Historic
the beauty of artificial landscapes, The main reasons for these changes Urban Landscape, a policy document
and specifically urban landscapes. are to be found in the gentrification aimed at placing urban heritage
This was followed by the 1968 processes that have accompanied within a broader conceptual frame-
recommendation concerning the urban economic growth in many re- work and with a clearer link to sus-
Preservation of Cultural Property gions, notably in North america and tainable development processes.
endangered by Public or Private europe; in the rapid expansion of the
Works. tourist industry, with a range of effects With the 2011 recommendation
impacting the social and economic on the Historic Urban Landscape,
The adoption of the 1972 Convention life of heritage areas; and in the in- UNeSCO has redefined its approach
Concerning the Protection of the creasing land reconversion processes in the area of urban conservation,
World Cultural and Natural Heritage inside and around centrally-located putting the cultural dimension at the
meant that different categories of historic areas. The loss of cultural core of sustainable urban develop-
heritage, related to the natural and and natural heritage has accelerated ment. This approach, while based on
cultural realms, were brought under as a consequence of these processes. the established practice of heritage
the same definitions and principles; In other regions, including South conservation, reinterprets the urban
and a system of international re- asia, some parts of Latin america context as a fundamental resource
sponsibility for the conservation and and the arab States, urban heritage for the livelihood of communities, the
monitoring of heritage sites was is still largely characterized by social result of a layering process of tangible
established. The World Heritage marginality and sub-standard and intangible values that needs to
Convention has also become a point housing conditions. This also con- be nurtured and preserved as an asset
of reference for the identification, stitutes a threat for the survival of for sustainable development. These
conservation and management of urban heritage. dimensions have been recognized
cultural and natural heritage world- as essential aspects of sustainable
wide. urban development, as reflected in
Sustainable development Goal 11 of
the 2030 agenda.
166
SECTION B
Curitiba (Brazil)
© Mathieu Bertrand Struck/Flickr.com*
Building on this awareness, this

section contains several articles,
and perspectives from city networks,
international organizations, artists
and academics, as well as case studies
from cities around the world, all re-
lated to the improvement of the built
and natural environment through cul-
ture. as the first of four articles,
Hassan radoine’s piece on human-
centred and compact cities highlights
the need to infuse culture into current
urban plans and strategies, making
cities more humane and sustainable.
Focusing on the need for sustainable,
resilient and green cities, Michael
Turner advocates for culture-based
solutions to environmental concerns
that integrate a respect for heritage
and traditional knowledge. Patricia
O’donnell centres her analysis on
inclusive public spaces, arguing that
such spaces are essential to achieving
social cohesion and equality in the
urban setting. Finally, eduardo rojas
writes of the growing challenge of
safeguarding urban identities, which
he asserts are vital to truly sustainable
urban development.
167
CHaPTer
5 HUMAN SCALE
and COMPACT CITIES
Jodhpur (India)
© f9photos/Shutterstock.com*
IN FOCUS
Culture should be considered as a catalyst IN THIS CHAPTER

for mixed-use, human scale cities that integrate Article:
cultural and natural resources in order to be Hassan Radoine, Director, National School of Architecture of
more sustainable. Morocco (Morocco). Planning and shaping the urban form
through a cultural approach
Urban heritage can contribute to Perspectives:
sustainable development through creative Renzo Piano, architect and Pritzker Architecture Prize laureate
strategies of urban regeneration and adaptive 1998. Bringing ‘beauty’ to cities
reuse. Milica Bajic Brkovic, President (2012─2015), International
Society of City and Regional Planners (ISOCARP). Untangling the
shifting relationship between culture and urban planning
Cultural and natural resources can improve Leon Krier, architect-urbanist. Inaugural R.H. Driehaus
the quality of human habitat and the Architecture Prize laureate 2003. Towards future cities
sustainability of the built environment. Case studies:
Ouro Preto (Brazil). Peripheries at the margins of conservation
Local authorities need to build on efforts
creativity and heritage as assets to strengthen a Prague (Czech Republic). Transitioning towards a polycentric city
sense of place and belonging. Johannesburg (South Africa). Placing culture at the core of post-
apartheid urban development
Rome (Italy). Mixed-use cities
Mumbai (India). Community participation contributes to a
vibrant arts district
168
5
PLANNING AND SHAPING THE URBAN FORM THROUGH
C H A P T E R
A CULTURAL APPROACH
HASSAN RADOINE
National School of Architecture of Morocco (Morocco)
WITH INCREASEd URBANIZATION ANd RAPId URBAN dEVELOPMENT, CITIES WORLdWIdE HAVE MOVEd
FROM A QUALITATIVE URBANISM - AS A VEHICLE OF SOCIAL, ECONOMIC ANd ENVIRONMENTAL
dEVELOPMENT - TO A QUANTITATIVE URBANISM OF MUSHROOMING URBANIZATION, dEVOURING
HUMAN SCALE and COMPACT CITIES

CULTURAL, ENVIRONMENTAL ANd ECOLOGICAL RESOURCES. IN THE WAKE OF GLOBALISM FORCES,
URBANIZATION HAS ALSO SHIFTEd THE PARAdIGM OF THE SOCIAL ANd CULTURAL REPRESENTATION
OF CITIES. SINCE THE AdVENT OF SEEMINGLY MOdERNIST URBANISM AT THE BEGINNING OF THE
TWENTIETH CENTURY, THE CONTEMPORARY URBAN FORM IN MOST CITIES OF THE WORLd HAS
PURSUEd A GLOBAL ANd COSMOPOLITAN IMAGE. THIS NEW IMAGE OF TABULA RASA ANd ABSTRACTION
HAS HAd NEGATIVE CONSEQUENCES ON SOCIAL ANd CULTURAL SUSTAINABILITY.
W hile the cultural memory of the built environment

underlines the relevance of historical, cultural and
social roots, rapid urbanization is continuously erasing its
BRINGING ‘BEAUTY’ TO CITIES
Renzo Piano architect and Pritzker Architecture Prize laureate 1998
genius loci. The continuous struggle is to preserve the

authenticity of the city, including its rich social settings,
One cannot describe the contribution of civilization and, above all, they illustrate
culture to the development of our cities, in the direct relationship between building
living cultural heritage and natural resources. Therefore, my view, without starting with a definition places for culture, knowledge, education
in order to improve the quality of the current and future of culture based on beauty. The word and the sustainable development of cities.
built environment, it is essential to consider all cultural bellezza in Italian has a great charm and a
and natural resources in territorial and urban planning meaning similar to that of the ancient Peripheries are the most unjustly suffering
processes. Greeks: beauty that blends with goodness parts of the city. They are often associated
- goodness in the ethical sense. ‘I promise with a negative or derogatory adjective.
to give you back our city more beautiful The periphery is often labelled as distant,
Goal 11 of the United Nations Sustainable development than you gave it to me’ was the oath of sad, desolate, dreary or dangerous. But
Goals (SdGs) pledges to make cities ‘inclusive, safe, newly-elected leaders of Athens to their in many of our cities, a majority of the
resilient and sustainable’ (United Nations, 2015). fellow citizens, where ‘more beautiful’ population lives there. The power may
Achieving this aspiration cannot be attained without meant ‘better’. This concept of beauty is at be in the centre, but the energy, the
sensible planning, which includes strengthening and the core of culture, not only in terms of desire to change things, the ‘factory of
cultivating a sense of place and belonging. In addition, artistic creation - be it music, painting, film desires’, is in the peripheries. This is for
according to the Recommendation on the Historic Urban
or photography - but also in terms of better or worse, of course, but it is wrong
scientific research. Scientific research is pure to say that it is just for worse. Peripheries
Landscape, there are critical steps to ‘integrate policies beauty. It is the need to know. The excitement often enjoy a beauty for which they had
and practices of conservation of the built environment of scientific research corresponds to that of not been designed, because they have
into the wider goals of urban development in respect of artistic creation. If we attribute to the word been poorly constructed without affection
the inherited values and traditions of different cultural ‘beauty’ this dual quality - attractive and or dedication. But this is where the
contexts’ (UNESCO, 2011). These steps advocate: good - we can say that beauty makes energy is. It is clear that our cities have
integrating urban heritage values and their vulnerability people better. to change and the very first thing to do
status into a wider framework of city planning and
is to fertilize the peripheries, to equip
Just as beauty – which has to do with them with the facilities of learning, of
development; and prioritizing conservation and discovery, knowledge, learning and cu- knowledge, of culture. Of course, this is
development actions. riosity - makes people better, buildings on condition that by ‘culture’ we do not
that convey such beauty - museums, mean a culture for the few, but a culture
Notwithstanding the direct reference of SdG 11 to the schools, universities, concert halls, libraries based on bellezza. This notion of beauty
sustainability of cities and human settlements, more - make cities better. They are elements is not a romantic idea; it is a profound
broadly, all other SdGs address the three dimensions of that fertilize the urban fabric. They rep- concept, which has to do with the wishes
sustainable development: economic, social and environ-
resent the essence of a city as a place of of the people and their desire to transform.
mental. It is hence primordial to translate these macro
strategic goals into applicable formula in different
sectors. In the area of city planning and development,
applying these goals means identifying intrinsic local eco- CULTURE: A KEY COMPONENT OF
nomic and environmental mechanisms that are geared HUMAN-CENTRED CITIES
towards upgrading the living experience of a historic or a
contemporary settlement. Therefore, in order to grasp Over the past three decades, city planners and stake-
the different dimensions of culture as an effective holders worldwide have been faced with communities
trigger for regenerating existing cities or planning new reclaiming cultural representation in contemporary
ones, culture must be seen as a component of urban cityscapes. decontextualization of the cityscape with
resilience, with its resources integrated in urban design monotonous, repetitive architectural and urban forms
and planning processes. has generated hostile urban spaces. It has become
increasingly vital to cultivate resilient cultural resources
to render the city humane and memorable.
169
ENVIRONMENT Improving the quality of the built and natural environment through culture
Accordingly, the relationship between cultural heritage In many developing countries, the urban context seems
conservation and contemporary urbanism, which has immune to memory eradication when it comes to social
conventionally been perceived as conflicting, ought to be and cultural manifestations in spite of the modernization
explored as a key catalyst for sustainable and inclusive taking place. In these countries, cultural heritage - both
cities. The historic urban and natural landscape gives a its tangible and intangible dimensions - is living and
sense of community representation, thus serving to main- sustainable. This is due to the vibrant cultural memory of
tain an interactive dimension in fragmented urban spaces. historic and current cities. The individual is part of a
Conservation has extended its scope from the mere complex system of codes that intertwines place and a
archaeological restoration of tangible relics to the rejuve- sense of a cultural reference. In order to bridge the gap
nation and development of living heritage, expressing the between the cultural context and the modern built
human experience and embodying the dynamic urban environment, it is strategic to explore the role of cultural
morphology of cities. resources in urban design and planning.
NEZUELA GUYANA
CASE STUDY 72 SURINAME
CASE STUDY 73 GERMANY
A
Ouro Preto (Brazil) Prague (Czech Republic) POLAND
Peripheries at the margins Transitioning towards CZECH REPUBLIC

of conservation efforts BRAZIL
a polycentric city
BOLIVIA SLOVAKIA
NATIONAL
STATE OF)
Ouro Preto was the first Brazilian city For more than 1,000 years, Prague AUSTRIA
H
to be inscribed on the UNESCO World E PARAGUAY has been the cultural, political and economic core of the
Heritage List in 1980. Since the 1930s, ARGENTINA Czech Republic. In recognition of Prague’s medieval urban-
U
the city has been the focus of conservation policies that have ism in its historic centre, it was inscribed on the UNESCO
largely succeeded in preserving the physical fabric of the World Heritage List in 1992. As the city entered into the
historic centre. At the same time, these policies have tended twenty-first century, political, social and economic shifts sig-
to overlook the city as an evolving, dynamic organism in nificantly influenced the urban development of the city and
favour of preserving the landscape as an aesthetic ‘work of its spatial planning. The concentration on the city centre and
art’. Top-down heritage conservation policies have empha- unbalanced investment in certain areas has resulted in the
sized the city’s colonial heritage core, while neglecting city being hampered by transport congestion, with often
irregular settlements and peripheral neighbourhoods in the outmoded infrastructure and a lack of available housing. The
surrounding hills that often face precarious conditions and transition from a monocentric to a polycentric structure of
infrastructural problems. Imposed design guidelines for new the city is at the core of Prague’s strategic priorities. The
buildings in Ouro Preto have resulted in contemporary build- Prague Strategic Plan for 2009–2015 outlined guiding prin-
ings that emulate houses from the eighteenth century. As ciples of the spatial planning policy directed at regulating
such, the city has not been given the opportunity of histor- land and building uses as well as achieving greater balance
ical continuity, including expressions of contemporary archi- between green and built-up areas in the city. The objective
tecture, together with the inclusion of communities that may is to reduce the pressure on the city centre by opening up
not live within the delineation of the city centre. usage of the overall city area. Yet the city and its inhabitants
Source: Coimbra University, report for Study Area 8 are also faced with a conflict between the needs of modern
life and the tangible and intangible legacy of the past. This
has often led to the interpretation of the city’s cultural her-
itage as an obstacle rather than an opportunity to further
the city’s regeneration. Large-scale developments such as
Reclaiming the city for its citizens is currently a de facto skyscrapers have further compounded these issues, pointing
ideal in order to bridge the widening social gap in urban to the need to encourage an approach guided by the 2011
planning practice (Radoine, 2013). Social inclusivity Recommendation on the Historic Urban Landscape.
cannot be attained without an urban space that fosters Source: IUAV, report for Study Area 3
the messages of historic forms and their embedded
collective memory (Boyer, 1996). Currently, the city
dweller is enmeshed in an artificial urban order that
jeopardizes the cultural richness and meaning of urban
spaces. This order is embodied in the recurring CULTURAL RESOURCES IN URBAN DESIGN
checkerboard layout of new cities. The continuity of AND PLANNING
image and memory of the historic urban environment in
a city is therefore not only related to its physical In order to cultivate urban design and planning that
permanence but, more interestingly, to its resilient considers cultural resources, it is important that urban
patterns of human activity through space and time. Here, forms sustain cultural and contextual meaning. This
the concept of resilience related to cultural heritage meaning has to be identified or envisioned, hence the
refers to recovering dormant dynamic resources in order complexity of the exercise. The identified meaning is often
to contextualize contemporary urbanism. It is the ability a problematic task since not all architects and planners
of a city to regenerate its latent cultural memory and are trained as such. Moreover, the current nature of
image. architectural and planning practice favours high-speed
170
C H A P T E R
Plaza de la Encarnación, Seville (Spain)
© crodrguezcampos/Flickr.com*
projects and neglects research on the cultural and a contemporary city dynamic. Such an approach is
contextual parameters of a site or city prior to design or contingent on strengthening a dialogue between past and
planning. present human occupation of space. Including urban
heritage as part of planning processes means to accept
Historic urban fabrics are still breathing, and can development vis-à-vis the value of the given heritage,
potentially inform contemporary designers provided the which, accordingly, informs strategies of urban
historic spaces are not obsolete and there are still regeneration and adaptive reuse.
populations living there. This exercise would bring about
useful cues concerning uses of space and resilient cultural P E R S P E C T I V E 24
behavioural patterns related to existing architectural and UNTANGLING THE SHIFTING RELATIONSHIP BETWEEN CULTURE
urban archetypes, which can be applied to future urban AND URBAN PLANNING
Milica Bajic Brkovic President (2012─2015), International Society of City and
projects.
Regional Planners (ISOCARP)
Accordingly, future urban and planning projects ought to The complex relationship between culture the power of local culture in generating
foster cultural and social values. The designer or planner and sustainability has radically affected citizens’ initiatives that made Kovačica a
can contribute to ensuring that these projects embody
our understanding and practice of urban world-renowned centre of Serbian Naïve
planning. Sustainability, which started art. In Tai O, Lantau (China), joint efforts
social cultural codes. When a level of maturity is reached out as just another movement in the late and social cohesion guided its post-
in an urban project, its spaces develop rich behavioural 1960s, gradually developed into a complex disaster recovery within the specifics of
patterns that serve for sustainable orientation, education structure of values, ideas, relations and their local culture. On an entirely different
and adaptation. practical application modes. Initially de- scale, but within the same narrative, the
scribed as a triad made of economic, Rotterdam Climate Initiative explores in-
To achieve this, it is important to undertake comprehensive social and environmental sustainability, novative urban design and planning so-
surveys and mapping of the city’s natural, cultural and
and focused primarily on the area where lutions in response to climate change.
the three meet, it is nowadays perceived Indeed, the dynamic interchange between
human resources, and to reach consensus through as a quadrangle - as culture emerged to culture and space stimulates the imagi-
participatory planning and stakeholder consultations on become the fourth pillar of the philosophy. nation, knowledge and creativity of plan-
what values to protect for future generations. ners, and influences their visions and
Understanding the role and importance decisions for an urban future.
of culture is essential in making the plan-
ning process integrative, functional and Culture always holds a dual role. On the
It is odd that few urban planners speak of the capable of responding to urban challenges one hand, it is a shell in which planning
importance of phenomenological characteristics by: (a) placing the issue of culture among solutions emerge and where planning
determining the qualities of urban life - spatial the major contributing factors to spatial interventions take place; on the other, it
energy and mystery, qualities of light, color, sound, and urban development; (b) introducing moulds the position and meaning of
culture-relevant criteria in considering planning, its instruments and procedures.
and smell. The subjectivity of urban experience land uses and organization of urban Indeed, the variety, diversity and dynamics
must be held in equal importance to the objective space; (c) exploring how the urban form of conceiving and understanding the pro-
and the practical. transforms in response to culture-based cess of planning are recognized in re-
requirements, and identifying the effects sponse to the changing relationship be-
Steven Holl, architect
that these requirements impose on cities tween culture and placemaking. Planners
and regions as a whole; (d) involving are changing the way they work by in-
the community and listening to their troducing new means, altering existing
ideas and experiences; and (e) mobilizing ones, and by employing current methods
URBAN REGENERATION AND ADAPTIVE citizens’ interest in making their commu- and techniques that are accessible and
REUSE FOR SUSTAINABLE DEVELOPMENT nities resilient and more secure places to easy to use. Planning procedures and
live. evaluation techniques are becoming more
culture-sensitive as new criteria for eval-
Since urban heritage is the accumulation of different In this regard, there are many illustrative uation and making choices are being in-
developments throughout history, urban regeneration or good practices around the world. The troduced, while culture-based indicators
adaptive reuse at the city level is multi-layered and outstanding experience of Kovačica, a are slowly taking their place in standard
represents a different level of complexity. The adaptation Slovakian village (Serbia), speaks about indicators.
of cultural and natural heritage can contribute to keeping
171
These strategies are crucial for reactivating dormant The scale and proportion of future urban projects should
cultural and environmental synergies of cities through respect the nature of its sustainable natural and urban
their historic urban settings. This entails identifying a traditions. This is not a vindication of historicism and its
sound adaptive reuse urban policy that stimulates prescribed scales, but rather a conscious act to sustain
development possibilities. Sustainability is henceforth a local communities within a living environment that is a
crucial criterion to assess urban regeneration in relation continuum of a natural habitat for which scale and
to development, and how the urban fabric can be proportion are an integral part of its sustainability.
conserved while ensuring sustainable development
potential. For example, the major regeneration project of
the Rhine-Ruhr area (Germany), was achieved through
transforming its obsolete industrial areas into green parks
The pedestrian is an extremely fragile species, the
and recreation infrastructure. It is a leading example of canary in the coal mine of urban livability.
urban design and planning that explores cultural Jeff Speck, urban planner
resources at the metropolitan scale.
FROM EMPIRICAL TO PROSPECTIVE Compactness

CULTURAL SUSTAINABILITY IN THE BUILT
ENVIRONMENT Compactness is a valuable criterion in urban design and
planning because of the current fragmented nature of the
The built environment must perform to its fullest urban environment that hasn’t reached maturity in terms
potential in order to advance the quality of human of organized urban blocks and subdivided plots. The
habitation. Rapid-growth megalopolises have spread a consumption of agricultural lands and continuous urban
mechanical urbanism over large land territories, which sprawl necessitates new methods of optimizing land use
has impacted the sustainability of the city and its and its resources. Compactness in contemporary planning
surrounds. In order to seek urban balance, it is important can provide, as in the traditional fabric, maximum interior
to explore efficient ways of generating new urban spaces while creating an external communal pattern.
synergies for the current built environment, and orient
developing economies to avoid the destructive impacts of CASE STUDY 74
abrupt modernization.
MO
BOTSWANA
Johannesburg (South Africa)
Placing culture at the SWAZILAND
Accordingly, historic pre-industrial urban settings may

NAMIBIA
core of post-apartheid
provide planners with a myriad of planning tools on how
LESOTHO
urban development SOUTH AFRICA

cultural and communal spatial dispositions are
established. despite the complexity of synthesizing all Past segregationist urban plan-
historic built environments for the purposes of informing ning and socio-economic inequalities continue to have a
future planning processes it is, nevertheless, imperative profound effect on how urban spaces are produced and
to draw some guiding frameworks. Human scale, used today in South Africa. Johannesburg, in particular, has
compactness, density, mixed-use, skyline and the been developing and implementing policies and pro-
neighbourhood can serve as key criteria in shaping grammes geared to addressing this past legacy. Access to
sustainable cities. public space and cultural production are the focuses of these
actions.
Human scale The Newtown Cultural Precinct forms part of a network of
five regeneration projects within Johannesburg aimed at en-
If architects and master builders succeeded in shaping hancing culturally significant areas. Culture is thus seen as
proportionate architectural and urban forms in the past, a way of commemorating historically relevant areas and the
one of their major influences was the human scale. creative legacy of their inhabitants by creating spaces that
Working closely with local communities, these masters can be accessed and used by all who live, work and visit the
generated contextual, proportionate forms, albeit seeking city and its surrounding areas. The Newtown Cultural
a sense of monumentality. Pursuing a strategy of seeking Precinct is a mixed-use area, comprising museums, theatres,
harmony and unity through appropriate scale and a dance studios, restaurants, workshops, live music venues
proportional system in the urban form is therefore and art galleries. However, the development of the Precinct
important. It is an exercise of exploring different
illustrates how planning of cultural spaces must extend be-
yond the construction of physical infrastructure to incorpo-
relationships between parts and wholes so as to tune a rate historical experiences and the perceptions of
design with a sense of a balanced multidimensionality. present-day communities. The embodiment of culture in so-
‘Monumentality’ of a building is thus an intrinsic quality, ciety, and the manner in which planning and urban design
not due to an intimidating scale but because of a visual responds, should be context-specific.
experience that is the result of genuine proportional Source: Arterial Network, report for Study Area 1
composition.
172
C H A P T E R
Rocinha favela, Rio de Janeiro (Brazil)
© Donatas Dabravolskas/Shutterstock.com*
Inadequate urban design and planning often provides P E R S P E C T I V E 25

unbalanced use of massing, which leads to a loose spatial TOWARDS FUTURE CITIES
organization at the architectural and urban scale. Leon Krier architect-urbanist. Inaugural R.H. Driehaus Architecture Prize Laureate 2003
Seeking to compact the urban fabric in a positive sense

Sustainability is a much abused and ill-used However much we enjoy our fossil fuel
term. The so called ‘ecological’ suburb, the dependence, it is toxic to our physical
would remedy weak planning of scattered land ‘green’ skyscraper, green-transport, -food, and mental health, to our buildings and
subdivisions that increases urban sprawl and high land -fuel, green-everything, as all zero carbon cities; even if we had fossil fuel forever,
consumption. There is a strong correlation between projects, are so many lies. They are no more we should redevelop authentic tradi-
architectural and urban massing, particularly in terms of possible than the perpetuum mobile. The tional forms of settlement, of construc-
hierarchal disposition, that responds well to fitting human only truly ecological city is the mixed-use, tion, of agriculture, of industry, of
scale to compacting spaces. In Fukuoka (Japan), a -scale, -income, traditional city, using local production. Human scale, we discover
‘Compact City Model’ has underpinned its vibrant
resources of materials, techniques and when too many of our built environs
crafts for its design, construction, use and have lost it, is an unrenounceable at-
economic and environmental development. Compactness maintenance. tribute of civilization, not an obsolete
was also applied as part of an integrated approach of the luxury.
master-planning of the city to support well-being. Traditional cities are about a scale that is
uniquely humane because is related to Instead of being divided into vast single-
Density our body and mind. Traditional architec- use zones, cities of all sizes must be
tural forms are shaped by humankind’s reorganized into families of independent
Compactness cannot be achieved without reviewing the
enduring use of natural building materi- urban quarters. These true cities within
als to adequately settle in specific the city must integrate regular daily,
urban density of a city. Urban density here not only means climates, geographic and cultural condi- weekly and monthly activities of
population density, but the optimization of land and tions. They make part of the timeless individuals and communities without the
resource use and distribution in urban territories. Urban technological heritage of humankind. obligatory use of mechanical means of
density is also an essential factor for urban sustainability They are as permanently relevant to the circulation. The functional zoning of cities
by improving land use in the city through infill and welfare of humans as common lan- is driving the daily mobilization of the
managing population density by balancing horizontal and guages, tools, vehicles, science and entire population in the performance of
vertical extensions.
techniques. To declare them as mere his- everyday tasks. This enforced geographic
torical heritage and, therefore, past and segregation is responsible for the
dated phenomena, is not only a philo- catastrophically global wastage of time,
For example, the disparity between rich and poor areas in sophic mistake but an ideologically land and energy of modern societies. It is
a city creates high-density poor zones relative to low- motivated error calling for definitive and profoundly unsustainable. The only way
density rich zones. The imbalance, particularly between authoritative correction. forward is to design integrated settlement
residential densities of the city, is one of the major causes policies on national and continental scales
of social inequity and hence the spatial discordance that
The ‘good city of the future’ will be in that will promote the ‘walkable city’, both
leads to social disorder.
structure and scale no different from the with regard to walkable distances and to
‘good cities of the past’. Human scale is walkable building heights.
an unrenounceable physiological and
densities of historic environments provide partial answers psychological reality and necessity. The real ecological challenge resides then
to how past urban organization has optimized resources Cities have since the advent of fossil enin the territorial reorganization of daily
and population distribution throughout city spaces. ergies been dictated by machine scale. human activities within society.
However, their concern for security and circulation often
prescribed a contained urbanization limited by walls or
topography. In the current urban status quo, with complex
functions of the city, urban density should be revisited in
order to optimize actions of infill, redevelopment, land-
use and distribution of resources.
173
Mixed-use structure with a communal spirit. Conversely, a

skyscraper ascending in the skyline of New York City or
Mixed-use is an old-new practice in cities where land Chicago (USA) makes sense as the American city has
development was not for one specific use, and urban gradually mutated since 1900 to foster such structures.
space was often explored to play different roles. In order
to prioritize pedestrian areas with less vehicular traffic, CASE STUDY 75 AUSTRIA
HUNG
historic cities accordingly offered layered places with

SLOVENIA
CROATIA
Rome (Italy)
several focuses and functions. The prime concern of Mixed-use cities BOSNIA
HERZEGOV
individual or juxtaposed buildings was to generate rich ITALY
human experience in a compact fabric. With advanced Rome is the capital of Italy, whose his-
modes of transport, this quality has been lost, giving way torical centre was first designated a
to more scattered and less-functional entities in the city. World Heritage property in 1980 and
Accordingly, the segregation of functions in the city extended in 1990. The Historic Centre
provoked the dispersal of urban cores. of Rome, the Properties of the Holy See in that City Enjoying
Extraterritorial Rights and San Paolo Fuori le Mura is a
It is hence timely to review urban development to transnational World Heritage property, involving both Italy
redefine the nature of urban form by envisioning layered and the Holy See. The city’s history spans more than two
patterns of use and functions. This would certainly create
and a half thousand years, forming a complex overlapping
of influences in its built landscape. Rome demonstrates the
‘place-based’ urban environments, thus bringing people coexistence of high touristic value, archaeological heritage
together in spaces of mixed urban functions without and the reuse of vestiges of the past as a way of creating
jeopardizing the vibrancy of businesses and activities. new urban spaces and structures that strengthen the city's
City users are becoming more conscious about place deep-rooted identity.
quality and how different areas of the city are more
geared towards a pedestrian experience. Rome’s Testaccio district - the ancient fluvial harbour of the
city - was the object of a project led by heritage managers
The exploration of mixed-use dimensions in planning and urban planners to excavate the site and create a covered
urban spaces cannot be achieved without creative urban market building. As a result of the excavation that revealed
form. Creativity can resolve complex composition of archaeological material at the site, architects, archaeologists
spaces in order to foster mixed uses within innovative
and the municipality worked in cooperation to establish an
underground museum in the new market building. The pro-
architectural and urban envelopes. The case of Redwood ject further catalysed the development of a mixed-use area,
City, in the San Francisco Bay Area in the United States of by opening up public accessibility to the archaeological site
America, is a pertinent example that combines mixed-use, and creating facilities for students living in the district.
land use, and creative urban form to shape a sustainable
and inclusive built environment. The city fosters
continuity of the sense of place while boosting community

development through several mixed-use categories that
offer people opportunities to live and work in close Thus, the notion of skyline needs to be revisited before it
proximity or to transit easily. is too late, particularly in highly populated regions. The
example of the plan for a new capital city of Egypt
Skyline launched in 2015 is indeed a threat to the human-scale
city. It is pursuing the trend of ‘dubaization’ and the
Skyline is indeed an issue for current city planning. The fascination with its magic skyline in the desert, with
skyline of the historic town was adapted to the human investors from the Gulf States and China. Nevertheless,
scale and topography. In places like Morocco, Tunisia, the purpose here is not to advocate resistance to
Turkey, Iran (Islamic republic of) and Iraq, the skyline of progress and modernity, but to explore skyline and
buildings and cities is related to existing urban and natural massing to preserve a certain sense of belonging that is
assets that are part of building over centuries. essential for local communities.
Currently, the height of the city has shifted to a more

shocking sense of scale. With new technological Contemporary urban design is about creating
advancements, the city is no longer for human scale but a sense of place and place-making. The presence of
has becomes a collection of skyscrapers, particularly in people turns spaces into places making them living,
the Gulf region, China and parts of the United States of working, organic parts of the city.
America. This is most dramatic when these super-high Steven Tiesdell, Taner Oc and Tim Heath, academics
structures are erected in the middle of nowhere as in the
case of dubai (UAE) and doha (Qatar). This is to the
detriment of community- and place-based urbanism.
dubai, for example, is faced with a contradiction between
many isolated high-rise buildings and a lack of an urban
174
C H A P T E R
Moscow Metro, Moscow (Russian Federation)
© Andrey/Flickr.com*
Neighbourhood CASE STUDY 76 PAKISTAN
NEPAL BHUTAN
Mumbai (India)
The neighbourhood is the most empirical form of historic Community participation
BANGLA
urban organization. Addressing its residential function is

INDIA
contributes to a vibrant
utmost to the success or failure of any urban project. The arts district
neighbourhood has played a major role in the unification
of communities through an urbanization that sought to Kala Ghoda precinct in South Mumbai
resolve ethnic and class differences through inclusive (India) is a vibrant, crescent-shaped SRI LANKA
spatial organizations. It was - and remains - a vehicle for area with a concentration of historic buildings, restaurants
the sustainable social and cultural metabolism that has and cafés, as well as a flourishing art scene generated by nu-
strengthened the resilience of cities in times of conflict merous galleries, designer boutiques, and culture-related ac-
and turmoil. tivities. The most popular of these is the annual Kala Ghoda
Arts Festival, a nine-day event held each February, which at-
Modern cities have lost this core function of offering a tracts a wide variety of artists, performers and craftspeople.
habitable neighbourhood where the sense of citizenry is
Yet Kala Ghoda was not always a lively centre of arts and
cultivated. The neighbourhood needs to be revisited in
culture; 20 years ago, it was known primarily for its surround-
ing libraries and colleges, and many of its historic buildings
the current planning of cities in order to improve urban were in disrepair.
quality, social and cultural cohesion and inclusion.
Participatory planning and involving communities in This began to change when the Mumbai-based Urban Design
envisioning their neighbourhoods is needed to boost Research Institute (UDRI), along with a group of architects,
human security and resilience, spatial integration and conducted a survey of the neighbourhood and discovered a
connectivity. Current urban design and planning should high concentration of contemporary art galleries. In their Kala
centre their practice around this vital unit of planning of Ghoda Conservation Plan, UDRI proposed that Kala Ghoda
the neighbourhood as a social and cultural value, and not be designated as an arts district, prompting the precinct’s
as an aesthetic play of forms. artists, gallery owners, and cultural institutions to come to-
gether to form the Kala Ghoda Association in 1998. The Kala
Ghoda Arts Festival was launched one year later and was an
CONCLUSION
instant success. With the funds generated from the festival,
the UDRI began a process of improving Kala Ghoda’s street
furniture and pedestrian access, while also restoring its his-
Cultural and natural resources must be integrated in toric buildings, including the David Sassoon Library and gar-
territorial and urban planning processes to strengthen dens, the Elephantine College, the Institute of Science, the
cultural and environmental sustainability and nurture a Chhatrapati Shivaji Maharaj Vastu Sangrahlaya (formerly the
sense of place and belonging. Ensuring cultural and Prince of Wales Museum), and the Horniman Circle garden.
contextual dimensions in architectural and urban design Before long, new shops, restaurants and cafes arrived and
can cultivate sustainable development. Applying human Kala Ghoda emerged as the dynamic arts district South Mum-
scale to built environments through compact urbanization bai’s residents know today.
is a way to resolve key issues of scattered land use and
urban sprawl. Urban sustainability can be realized based
The success of Kala Ghoda offers several key lessons that
might be applied to other contexts. For example, community
on effective management of population density and participation proved essential to the designation of the
resource consumption, while methodologies and precinct as an arts district and the development of the art fes-
mechanisms that boost synergies within built tival. The restoration of historic buildings served to give Kala
environments can support developing economies in Ghoda a unique identity in a city of more than 18 million peo-
preventing the destructive impacts of abrupt urbanization. ple. Moreover, in Mumbai, where public space is at a premium
and pedestrian access is scarce, the highly-walkable Kala
Ghoda stands out, encouraging both tourists and residents
alike to enjoy its cultural offerings and historic urban fabric.
Source: Srishti Institute of Art, Design and Technology, report for Study
Area 5
175
CHaPTer
6 SUSTAINABLE, RESILIENT
and GREEN CITIES
Community garden. Sana’a (Yemen)

© Rod Waddington/Flickr.com*
IN FOCUS
Implementing actions to harness culture’s

role in sustainable, resilient and green cities is IN THIS CHAPTER
an incremental process. Article:
Michael Turner, UNESCO Chair in Urban Design and Conservation
The understanding of traditional cultural Studies, Bezalel Academy of Arts and Design, Jerusalem.
practices including vernacular construction Heritage in cities: culture-based solutions to environmental
concerns
technologies is essential for resilience.
Perspectives:
Resilience needs redundancy and Inger Andersen, Director General, International Union for
Conservation of Nature (IUCN). Nature can help build better
multiplicity, which can be provided through towns and cities
cultural diversity. Recognizing social Denis Ricard, Secretary General, Organization of World Heritage
transformations encourages multiple identities. Cities (OWHC). Resilient World Heritage Cities and their
communities
Anthony Gad Bigio, George Washington University (USA).
Green in cities is not just for energy Cutting carbon emissions from the heritage building stock
management but is an essential component
of quality of life and environmental equilibrium, Case studies:
including supporting cultural events and Khorog (Tajikistan). Sustainability through civil society
participation and governance: rehabilitation of Khorog Park
activities. Christchurch (New Zealand). Heritage and cultural revitalization
in post-earthquake recovery
Disaster recovery strategies that focus on Samarkand (Uzbekistan). The key role of local communities in
restoring arts and cultural activities and cultural sustainable heritage management
New Orleans (USA). Rebuilding New Orleans after Hurricane
heritage revitalization promote healing and Katrina
commemoration. Copenhagen (Denmark). Peddling green growth
176
6
HERITAGE IN CITIES: CULTURE-BASED SOLUTIONS
C H A P T E R
TO ENVIRONMENTAL CONCERNS
MICHAEL TURNER
UNESCO Chair in Urban Design and Conservation Studies, Bezalel Academy of Arts and Design, Jerusalem
‘SUSTAINABLE’, ‘RESILIENT’ ANd ‘GREEN’ HAVE BECOME INTERTWINEd AS KEY COMPONENTS FOR THE
FUTURE OF THE CITY, TOGETHER WITH THE NEEd FOR CULTURE TO SUPPORT THEIR PERFORMANCE.
SUSTAINABLE, RESILIENT and GREEN CITIES

EXPONENTIAL URBAN GROWTH SINCE THE INdUSTRIAL REVOLUTION HAS BROUGHT ABOUT NEW
CHALLENGES. THESE CHALLENGES HAVE ONLY INCREASEd SINCE THE 1972 UNITEd NATIONS
CONFERENCE ON THE HUMAN ENVIRONMENT IN STOCKHOLM, WHEN THE PRESERVATION ANd
ENHANCEMENT OF THE HUMAN ENVIRONMENT WAS FIRST PUT ON THE WORLd AGENdA.
Sustainable Green
For development to be sustainable, it must take account Green cities have clean air and water and pleasant
of social and ecological factors, as well as economic streets and parks. Green cities are resilient in the face
ones; of the living and non-living resource base; and of of natural disasters, and the risk of major infectious
the long-term as well as the short-term advantages and disease outbreaks in such cities is low. Green cities also
disadvantages of alternative actions. (IUCN et al.,1980) encourage green behaviour, such as the use of public
transit and their ecological impact is relatively small.
It took another 15 years to evolve a strategy that was (Kahn, 2006)
crystallized in the 1987 United Nations World Commis-
sion on Environment and development (WCEd) report All this has come together in the 2030 Agenda for
Our Common Future, which coined the term ‘sustainable Sustainable development and the recognition of the cultural
development’, containing two key concepts: (1) needs, in contribution. The vision includes a ‘world where human
particular those of the world’s poor, to which overriding habitats are safe, resilient and sustainable and where there
priority should be given; and (2) the limitations imposed
by the state of technology and social organization on the P E R S P E C T I V E 26
environment’s ability to meet present and future needs NATURE CAN HELP BUILD BETTER TOWNS AND CITIES
Inger Andersen Director General, International Union for Conservation of Nature (IUCN)
(WCEd, 1987). The Commission’s mandate included
developing innovative, concrete and realistic action pro- What will our world look like in 2030? well-being, economic prosperity and
posals in response to critical issues of environment and We are likely to be nearly 10 billion quality of life.
development. people sharing this planet, most of us in
urban areas. This has major implications The non-material benefits we obtain
Yet another 15 years passed until resilience in the context for nature and the many services it pro- from nature are known as ‘cultural ecosys-
of global environmental change became an agenda item vides. The International Union for Con- tem services’. These include recreation,
at the 2002 World Summit on Sustainable development
servation of Nature (IUCN) is resolute aesthetic enjoyment, physical and mental
that nature needs to be placed front health benefits and spiritual experiences,
in Johannesburg. and centre of our plans for building sus- all of which contribute to our sense of
tainable, resilient towns and cities if we place, foster social cohesion and are es-
Resilience are to make them good places to live sential for human health and well-being.
and in sync with the environment.
The ability of a system, community or society exposed Evidence suggests that we are currently
to hazards to resist, absorb, accommodate to and The world’s stock of natural assets, in- not benefitting enough from these cultural
recover from the effects of a hazard in a timely and
cluding geology, soil, air, water and all ecosystems services. The impact of our
living things is what we call our ‘natural changing climate is already leading many
efficient manner, including through the preservation capital’. From this natural capital, humans cities to start realizing the potential for
and restoration of its essential basic structures and derive a wide range of vital services, ecosystems, such as forests, wetlands,
functions.1 UNISdR Terminology (2009) often called ecosystem services, which peatlands and urban green spaces, to
make our lives possible. provide huge opportunities for mitigating
Howard (1902) in his treatise Garden Cities of Tomorrow and adapting to the effects of climate
can be attributed as the first modern proponent of green
The Cities and Biodiversity Outlook project change.
is the first global assessment of urban-
cities, reacting to the consequences of the Industrial Rev- ization, biodiversity and ecosystem ser- Conservation efforts like these offer prac-
olution, speculation and unhealthy environments. Being vices. It offers unique guidance on both tical, cost-effective and globally significant
the youngest term, ‘green’ is still in flux and being defined the challenges and opportunities of ur- solutions to the many challenges faced
and applied in diverse ways around the world. However, banization for biodiversity, the economy in our burgeoning urban areas. But we
it is the relationship to ecosystems that is common to its and society. It makes clear that the total must now give more prominence to
usage. Green cities are a means for enhancing the sus- area of land covered by urban develop- these real solutions on offer and develop
tainability of urbanized areas and where ecosystem
ment is set to triple between 2000 and the business case for widespread in-
2030. Towns and cities will draw heavily vestment in urban biodiversity conser-
services lie at the core of the concept (Setälä, n.d.). on natural resources, often using prime vation and ecosystem restoration efforts.
agricultural land, with knock-on effects For certain, how our world looks in 2030
on biodiversity and ecosystem services will be determined by how we think
1
Author note: As a key role for culture, the resilience of a community
with regard to potential hazard events is determined by the degree to
elsewhere. The loss of these services about natural capital and its role in
which the community has the necessary resources and is capable of will have severe impacts on health and building our cities today.
organizing itself both prior to and during times of need.
177
is universal access to affordable, reliable and sustainable

CASE STUDY 7 7 KYRGYZSTAN
CHINA
energy’. Paragraphs 34 and 36 recognize that ‘sustainable Khorog (Tajikistan) KISTAN
urban development and management are crucial to the Sustainability through civil TAJIKISTAN
quality of life of our people’ and ‘that all cultures and society participation and PAKISTAN
civilizations can contribute to, and are crucial enablers of,

INDIA
governance: the regeneration AFGHANISTAN
sustainable development’ (United Nations, 2015). of Khorog Park

Nestled 2,100 m above sea level and surrounded by the
KEY TRENDS FOR URBAN HERITAGE Pamir Mountains, the town of Khorog (Tajikistan) is home
to 22,000 inhabitants. As the town’s central public green
At the core of the conservation and safeguarding of
space, Khorog Park is the main recreation space for the local
population, and the site of international festivals and other
tangible and intangible heritage is the application of cultural activities.
sustainable urban development strategies. Key trends
show that while there has been greater awareness of Ten years ago, and faced with the impact of civil and political
these issues, the tools needed for implementation and unrest, the park was in a state of abandonment and deteri-
integrated planning approaches have yet to be put in oration, with several areas destroyed. Responding to the
place. Climate change has intensified many urban need for a public space for refuge and recreation and capi-
problems with flash storms, hurricanes and heatwaves talizing on its geographic setting, redevelopment of the park
together with other natural events, such as earthquakes. began in 2005 with the support of the Aga Khan Trust for
Culture (AKTC). The project sought to rehabilitate the park’s
Loss of the legacy of the past through intensive and rapid green areas and strengthen social connectedness through
development processes and urban sprawl has reduced
developing the park as a space for cultural events, together
with an open air theatre, café and teahouse.
the connection between communities and their
agricultural hinterland and has increased the carbon A defining feature of the rehabilitation strategy was the
footprint. This problem has been compounded by massive strong participation of civil society in the design, planning
social transformations through migrations, questioning and realization of the development works. Design was for-
local identities and, at times, resulting in socio-economic mulated through public consultation, and locally-sourced
collapse. On the other hand, the regeneration of city materials were used wherever possible with a view to con-
centres and the greening of the city through adaptive serving and enhancing the existing natural features that ex-
reuse of cultural heritage assets have improved urban emplify the park’s setting. Major landscape rehabilitation
liveability. and construction works involved the active participation of
the local population through discussion groups, volunteer
work, employment and visits. At the level of governance of
the Park, the local population is integral to decision-making,
The recent emergence of climate change as a worldwide working together with the heads of 18 neighbourhood as-
preoccupation has provided new impetus to policy debates sociations of Khorog, members of the Khorog city govern-
over urban form. The atmosphere knows no jurisdictional ment, and representatives of the Aga Khan Development
boundaries, and this fact alone alters the dialogue between Network's local agencies.
cities and suburbs among cities across the globe. As national Source: Strelka Institute for Media, Architecture and Design, report for
Study Area 4
and state or provincial governments assume responsibility
for setting for reduced carbon emissions, the geographic Initiatives (ICLEI) URBIS initiative. The urban biospheres
focus of policy will need to shift to regional patterns have been seen as a key factor in strengthening the links
of urbanization. between urban societies and their natural environment
Gary Hack, University of Pennsylvania (USA) through enhanced urban agriculture, protecting bio-
diversity and revitalizing urban green areas.
UNESCO provides for disaster preparedness by the use

In recent decades, new mechanisms and recommenda- of ‘knowledge, innovation and education to build a culture
tions have evolved, providing tools to cope with many of of safety and resilience at all levels’ (UNISdR, 2005).
the challenges. UNESCO has addressed this through its Since its inclusion in 2004 in the Operational Guidelines for
policy and normative work, notably the flagship 1972 the Implementation of the World Heritage Convention
Convention Concerning the Protection of the World (UNESCO, 2004), risk preparedness has become a critical
Cultural and Natural Heritage, the 2003 Convention for tool for managing heritage. Most recently, UNESCO’s
the Safeguarding of the Intangible Cultural Heritage and actions on climate change, particularly in the context of
the 2005 Convention on the Protection and Promotion the Paris Climate Conference 2015 (COP21), have
of the diversity of Cultural Expressions. Urban bio- focused on improving resilience through national and
spheres of the UNESCO Man and the Biosphere local climate mitigation, adaptation and risk management
Programme (MAB) have been taken under the umbrella policies based on science, local and indigenous
of the International Council for Local Environmental knowledge, and ecological and sociocultural systems.
178
C H A P T E R
Local governments have increasingly come to be at the P E R S P E C T I V E 27
centre of efforts for building resilience to disasters. The RESILIENT WORLD HERITAGE CITIES AND THEIR COMMUNITIES

UNISdR’s Making Cities Resilient (MCR) Campaign initi- Denis Ricard Secretary General, Organization of World Heritage Cities (OWHC)
ated in 2010 now counts more than 3,000 participating If urban resilience is understood as the into World Heritage management struc-
cities, and following on from the 2015 UNISdR Sendai degree to which cities are able to tolerate tures. In many places, the first line of de-
Framework, the culture of resilience and the resilience of alteration before completely reorganizing fence for the protection of heritage is
culture is now being integrated in strategic local govern- themselves, World Heritage Cities can the local community. Therefore, these
ment policies. be models of resilience to threats ema- communities should be fully involved in
nating from natural hazards or armed the processes of heritage and resilience
conflicts, as well as effects from social or planning of their city.
economic changes. While World Heritage
C A S E ST U DY 78 Cities are highly vulnerable, they also The OWHC believes that World Heritage
Christchurch (New Zealand) embody unique and valuable assets, and Cities cannot be managed today without
Heritage and cultural NEW ZEALAND
thereby hold the key to learning from their local communities. The OWHC sees
the past for future actions. itself as a facilitator between policy-
revitalization in post- makers and the local communities that
earthquake recovery The role of cultural heritage with regard constitute the populations of our member
to urban resilience must be concerned cities. Today, managing World Heritage
A series of earthquakes from Septem- with natural, economic and social hazards. Cities is no longer about top-down ap-
ber 2010 to January 2012 caused ex- In planning for the management of proaches but about multi-sectoral, hori-
tensive damage to the city of Christchurch and the greater disaster risk, their identification and anal- zontal and bottom-up approaches, where
Canterbury region in New Zealand, with 185 lives being ysis should help develop management engaging the local communities can be
lost. Numerous landmark buildings were badly damaged, plans and these plans should be integrated the key to solving many problems.
over 100 buildings in the Central Business District were de-
molished, and many others were left in a derelict state.
The aftermath of the earthquakes spurred a rapid recovery The past decade has witnessed a growing trend in the
strategy to restore and revitalize the city through rebuild- greening of cities, which is being applied through low-
impact development and, in many instances, simply by
ing, organizing land use and developing the residential
providing more green areas in the city. Trends towards
sector.
The Christchurch recovery programme encompassed nu- urban globalization may not be reversed, but a more
merous sectors of activity, institutions and activities. The comprehensive view can address ‘cooling the city’ with
heritage and cultural-based recovery strategy included sustainable options that balance the urban cores with
three principal programmes: the Heritage Recovery Pro- their hinterlands, both human and physical. Actions to
gramme, the Arts and Culture Recovery Programme and the enhance green energy and control urban sprawl not only
Sport and Recreation Recovery Programme. The efforts serve to reduce a city’s environmental impact, but
were financed by the Christchurch Earthquake Appeal Trust contribute to boosting its resilience faced with disasters
launched in 2011, with NZ$20 million (US$14 million) al- and climate change while strengthening local identity and
located to heritage and culture projects. One of the most providing for social cohesion.
notable challenges was retaining heritage buildings as a
resource and part of the city’s identity confronted with the
CHALLENGES AND OPPORTUNITIES
need for rapid and wider earthquake recovery within avail-
able funding restrictions.
The recovery strategy placed heritage and cultural revital- Sustainability and resilience are at the heart of the 2030
ization at the core of redevelopment, devising a plan with Agenda, and policies for green cities will contribute to
an integrated, all-encompassing vision. The Heritage Recov- their interaction and implementation. The most direct
ery Strategy covered land-based heritage, such as buildings reference within the SdGs is in Goal 11: to make ‘cities
whose historic value was recognized through inscription on and human settlements inclusive, safe, resilient and
the New Zealand Heritage List, historic areas, archaeological sustainable’ (United Nations, 2015), particularly its
sites, heritage spaces and landscapes such as public targets 11.6 and 11.7.2
squares, and places of cultural significance to the Ngai Tahu.
The Arts and Culture Recovery Programme, linked to the
Christchurch Central Recovery Plan, addressed the revital- 2
11.6. Reduce the adverse per capita environmental impact of cities,
ization of cultural industries as important components of including by paying special attention to air quality and municipal and
urban life. The strategy focused on restoring and enhancing other waste management;
11.7. Provide universal access to safe, inclusive and accessible, green and
broad participation in arts and cultural activities, recovering public spaces, in particular for women and children, older persons and
infrastructure for cultural activities, strengthening the con- persons with disabilities;
tribution of arts, culture and heritage to the revitalization 11.b. Substantially increase the number of cities and human settlements
and healing process of the city, and commemorating the adopting and implementing integrated policies and plans towards
inclusion, resource efficiency, mitigation and adaptation to climate
lives lost during the earthquakes. change, resilience to disasters, and develop and implement, in line with
Source: WHITR-AP, report for Study Area 6 the Sendai Framework for disaster Risk Reduction 2015-2030, holistic
disaster risk management at all levels;
11.c. Support least developed countries, including through financial and
technical assistance, in building sustainable and resilient buildings
utilizing local materials.
179
What are the major challenges? The awareness of the CASE STUDY 79
issues is well in hand, and the next decades will be tested
KAZAKHSTAN
through implementation and application. How do we

Samarkand (Uzbekistan) UZBEKISTAN KYRG
manage social transformations in our cities? How might

The key role of local TURKMENISTAN TAJIKISTAN
cultural assets contribute to better cope with the

communities in sustainable
changes? What role can cultural heritage and identities
heritage management RAN
AFGHANISTAN
PAKIST
play to provide for the resilient city? How can we ensure

The historic town of Samarkand, located in a large oasis in
good governance and civic participation? Can we provide
the valley of the Zerafshan River, in the north-eastern region
innovative and dynamic economic solutions for of Uzbekistan, is considered to be at the crossroads of the Silk
livelihoods and well-being? How to engage in the Roads connecting many cultures, its history spanning over 2.5
managing of our environmental footprints? millennia. Samarkand was inscribed on the World Heritage
List in 2001 and, today, most of the property, with the excep-
The main opportunities are in: a) the potential of the tion of archaeological sites such as Afrosiab, is part of a living
digital age, including smart cities, social media and historic city. While there is a constant risk that urban growth
crowdsourcing; b) human capacity in joining forces to might transform the essence of historic urban areas, it is also
provide social inclusion, recognize cultural diversity and important to recognize that urbanization provides economic,
the importance of women and youth; and c) providing social and cultural opportunities that can enhance the quality
resilience through management and sustainability.
of life and traditional character of urban areas.
The conservation of the traditional urban fabric of the Timurid
SUSTAINABILITY
city of Samarkand is enshrined in the Management Plan and
excludes interventions such as the widening of streets and
the construction of buildings in the traditional open spaces.
Sustainability is the overarching directive for the coming What can appear to be a simple matter of urban conservation
decades, evidenced in the caption of the SdGs and is in fact of crucial social importance, as it allows for the con-
specific reference to sustainability. For example, Goals 8 tinued existence of an important element in Uzbekistan’s so-
and 12 call for developing and implementing policies and cial organization, the mahalla, and its expression through the
monitoring mechanisms for sustainable tourism that traditional urban fabric where it finds its roots. The mahallas
promotes local culture and products and generates jobs. (meaning ‘local’) are small-scale, autonomous social institu-
tions revolving around neighbourhood communities, often
The sustainability concept and its application, however,
occupying the aforementioned open centres in the traditional
urban layout. As a form of community representation, the
have not come into being without their critics. Marcuse mahallas are recognized as important components for site
(2006), an avid urban protagonist, wrote ‘[s]ustainability management, to such an extent that the Management Plan
as a goal for planning just doesn’t work. In the first place, of the property foresees that risk and disaster preparedness
sustainability is not a goal; it is a constraint on the training at community level should be carried out through
achievement of other goals’. Reid (1995) questions the mahalla centres. Certain projects equip these centres to
whether it is meaningful to talk of sustainable develop- act as safe havens in case of emergency, providing them with
ment when we have no certainty of the needs of future sufficient food and water supplies.
generations, their ecological, social and economic conditions.
Another important aspect of the mahalla’ involvement in the
Sustainability is essentially a means and not an end – it is
sustainable management of their historic city is that ongoing,
an attitude and a state of mind through holistic thinking.
day-to-day monitoring of areas and monuments is a task
shared between the city’s administrative body (the
The application of sustainable development requires that Hokimiyat), the users of the monuments, the mahalla com-
we see the world as a system that connects space, as well mittees and the community, in cooperation with the Regional
as time and people. The future of sustainability is to be Inspection on Monuments. The monitoring of emergency sit-
sought in the integrative approach to culture and uations is incumbent on those closest to the event and most
development. Sustainability therefore not only relates to familiar with the affected areas, who then report to the Re-
time by the transmission and development of culture over gional Inspection in charge of site management.
generations, but also place; what people’s environmental Prepared by UNESCO
context enables them to be. To achieve this, it must be
recognized that sustainability now extends beyond the
city, redrawing the boundaries to control sprawl and the cultural sector, together with operational activities,
reinvigorate the links between urban societies and their have provided evidence of culture’s role as a ‘driver and
natural environment. In such a way, the protection and enabler for sustainable development’ (UNESCO, 2012),
conservation of the natural and cultural heritage are a which has been reinforced through recent United Nations
significant contribution to sustainable development General Assembly resolutions concerning culture and
(UNESCO, 2015a). development.3
These issues – and indeed opportunities - highlight the 3

See: UN Resolutions 65/166 of 20 december 2010, 66/208 of 22
integral and pivotal role of culture. data and indicators on december 2011, 66/288 of 27 July 2012 ‘The future we want’, and
68/223 of 20 december 2013.
180
C H A P T E R
Seoul (Republic of Korea)
© Freedom Man/Shutterstock.com*
The marked shift towards the increasing responsibility of In short, resilience needs the harnessing of human capital
cities in ensuring future sustainability points to harnessing through diversity, natural redundancy, ambiguity, the
the capacities of local authorities and civil society. In recent dynamics of creative experimentation and improvisation.
decades, cities, local and metropolitan governments have
forged alliances committed to sustainability. GREEN
Green approaches are the means for achieving

RESILIENCE sustainability and providing resilience in the city. In recent
years, there has been a surge towards smart cities that has
Culture capable of achieving resilience involves a contin- equated to better energy management, mainly through
uous process of self-adaptation and incremental change. CANADA
There are many systems analyses on cycles for coping,

CASE STUDY 80
preparing and responding during and after disasters. The New Orleans (United States of America)
UNITED STATES
redundancy hypothesis assumes that more than one Rebuilding New Orleans OF AMERICA
species performs a given role within an ecosystem - after Hurricane Katrina

redundancy enhances ecosystem resilience (Walker,
MEXICO
1992).
The devastation of Hurricane Katrina in New Orleans (USA)
in 2005, claimed an estimated 1,800 lives and caused ex-
tensive property damage totalling around US$108 billion.
The preamble of the SdGs indicates the importance of The natural disaster forced the city to deal directly with the
socio-economic resilience, while resilience is specifically relationships between environmental and cultural resilience,
referred to in Goal 9 ‘to build resilient infrastructure, and focused discussions in the United States on sustainabil-
promote inclusive and sustainable industrialization and ity and resilience.
foster innovation’, as well as Goal 11.
The impact and aftermath of the hurricane and the subse-
Resilience is linked to sustainability through the integration quent flooding accentuated both positive and negative
of heritage and traditional knowledge in innovative and forces within the urban environment. In the wake of the dis-
culture-based solutions to environmental concerns. Urban aster, numerous initiatives surfaced for neighbourhood re-
resilience is provided through the multi- and mixed uses
covery, vernacular housing, adaptive reuse strategies and
of the city. Too often, it is the underprivileged who are
climate change adaptation, many of which have been inde-
pendent and experimental. Non-profit organizations played
most affected by urban disasters and the lack of social an important role in highlighting the importance of inte-
sustainability. Risk preparedness is now recommended as grated and interdependent strategies in disaster response.
an element in World Heritage management plans and
training strategies (UNESCO, 2015) but better integrative A decade after the disaster, unequal burdens on different
indicators will have to be developed, such as through segments of society has meant that the poor and marginal-
mechanisms of the UNISdR and the Resilient Cities ized are finding it most difficult to recover. Persistent security
campaign. concerns have led to the city responding through increased
security fees and considering zoning restrictions for the tra-
At the international conference ‘Culture for Sustainable ditional second-line parades, putting at risk some of these
Cities’, Hangzhou (China), 10-12 december 2015, four
legendary musical events and informal cultural events.
components of resilience were debated: economics,
Abandoned buildings are also seen as security risks, which
has sometimes led to rapid demolition rather than sustained
social and human dimensions, nature and culture, and regeneration processes.
management (UNESCO, 2013b). It was stressed that
integrating cultural heritage conservation strategies in The impact of Hurricane Katrina and the related disaster re-
urban regeneration projects provides for cultural sponses provide several important lessons. Disaster risk re-
resilience through: duction must be people-centred and engage all sectors of
1. Maintenance of spatial patterns and linkages of society in disaster planning, including the elderly, poor and
private and community spaces; other potentially vulnerable groups, and make adequate
2. Continuity of use and footprint – maintaining the provision for their safety when a disaster strikes. In addition,
spatial patterns that position people and places within achieving viable long-term solutions must integrate natural,
a mutually-understood context;
social, economic and cultural policies and initiatives.
3. Social capital made tangible. Source: School of Restoration Arts at Willowbank, report for Study Area 7
181
developing integrated infrastructure. From the urban

CASE STUDY 81
perspective, green growth represents a fundamental Copenhagen (Denmark)

SWEDEN
increase in demand for environmental quality, which Peddling green growth DENMARK
includes two elements:
1. Nature – Improved quality of life, including clean Building on its strong environmental
air, parks and open spaces; credentials, Copenhagen has placed
2. Energy – Products and services that reduce
green growth and quality of life at the
GERMANY
pressures on the environment, such as energy-efficient

centre of its city policy, underpinning its
goal to be the ‘world’s first carbon-neutral capital’ by 2025.
technologies and prioritizing public transport. Copenhagen’s environmental policy leadership spans re-
newable energy, district heating, waste management, re-
generation of its former industrial harbour and promotes
Nature pervades the city, forging bonds between the city and the air, cycling, a recognizable trademark of the city.
earth, water, and living organisms within and around it. In themselves,
the forces of nature are neither benign nor hostile to humankind. Fostering a pedestrian and cycling culture and regenerating
Acknowledged and harnessed, they represent a powerful resource for public spaces underlie the city’s green policy agenda. An in-
tegrated transport and land-use strategy initiated more than
shaping a beneficial urban habitat; ignored or subverted, they magnify
six decades ago transformed the once congested and pol-
problems that have plagued cities for centuries, such as floods and luted metropolis, and led to the development of dense, walk-
landslides, poisoned air and water. Unfortunately, cities have mostly able urban centres connected by rail-based public transport.
neglected and rarely exploited the natural forces within them.
Anne Whiston Spirn, landscape architect The Copenhagen ‘Finger Plan’ first proposed in 1947 re-
mains a powerful spatial concept that has since been given
renewed regulatory support at the national level. It has pro-
moted urban growth along rail corridors emanating from the
city centre, while protecting ‘green wedges’ from develop-
With regard to nature, the greening of the city relates to ment. To maximize the value of density, the city has targeted
personal well-being and microclimate together with the the creative use of its urban public spaces and features. The
creation of agricultural hinterlands and the provision of Plan is currently being updated for high-density mobility and
open spaces and urban biospheres for improved water to counter vehicle-dependence in the city, by increasing
management and health. For energy, it calls for policies to green mobility through new transit-oriented developments
diminish energy consumption, and linking to the policies
for walking, cycling, public transport and car-sharing.
of sustainability and resilience to cut pollution, improve In the Norrebro district of Copenhagen, the Superkilen public
air quality and reduce long-term environmental damage space was built in 2011 as a large-scale meeting space to
with green buildings and the containment of carbon service one of Copenhagen’s most ethnically-diverse neigh-
footprints (see Perspective 28). bourhoods and as an attraction for the rest of the city. The
idea behind the project was to create a space that both in-
All this highlights the need for enhancing the links between cludes and reflects the 60 nationalities living in the local
culture and nature. The UNESCO General Conference area, and the area’s design was driven by public participa-
has recommended cooperation between the natural tion. The space is 750 m long and comprises trails for pedes-
sciences and culture sectors with emphasis on World trians and cyclists that traverse three main zones: a square
Heritage and biosphere programmes. The World Heritage for sports, a green area including a children’s playground,
Committee, through the Advisory Bodies to the 1972
and a market and picnic area.
World Heritage Convention, has continuously encouraged Source: IUAV, report for Study Area 3
linking culture and nature as an inherent concept of the

Convention (IUCN and ICOMOS, 2015). The universal Integrative culture-led approach
acceptance of the Cultural Landscape category since its
adoption in 1992 is ample proof of this symbiosis. An integrative culture-led approach for the growth of
urban and rural areas helps to provide environmental
sustainability, thereby giving impetus to a diversity of
CONCLUSION cultural heritage practices providing resilience for the city.
Greening the urban environment through energy
The essential role of culture is in the harnessing of the efficiency, controlled urban sprawl and urban natural areas
local human potential of all spheres in the life of the city. will reduce the carbon footprint of cities. Finally, the proper
Implementing actions for sustainable, resilient and green understanding of traditional cultural practices can be a
cities is an incremental process. Reinvigorating the knowledge powerful tool to enhance the resilience of cities facing
of vernacular heritage, based on local materials and climate- threats, such as natural phenomena and climate change.
adaptive construction methods, encourages innovation The 2011 Recommendation on the Historic Urban
towards contemporary low-energy architectural models. Landscape places the notion of cultural heritage within
The application of local cultural identities can translate the urban context, and can provide guidance towards
global ideas into a meaningful local language. cities that are ‘safe, inclusive, resilient and sustainable’.
182
C H A P T E R
University of Warsaw, Warsaw (Poland)
© Stepniak/Shutterstock.com*

This integrative approach allows for the human factor and P E R S P E C T I V E 28
cultural norms that are critical in understanding how CUTTING CARBON EMISSIONS FROM THE HERITAGE BUILDING STOCK
people manage both human and natural disasters. The Anthony Gad Bigio George Washington University (United States of America)
culture of resilience and sustainability and the resilience
The Intergovernmental Panel on Climate
and sustainability of culture provides a vision that can be
buildings have substantially increased
Change in its Fifth Assessment Report for energy consumption for heating, cooling
applied to urban heritage globally, thus meeting the the reduction of carbon emissions from and lighting, the heritage building stock
challenges of social inclusion, the digital revolution and urban areas highlights four key urban design shows low levels of energy efficiency when
sustainable development. features to be pursued: density, land-use compared with modern buildings or con-
mix, connectivity and accessibility (Seto et temporary low-carbon design and con-
The conclusion points to strengthening an approach al., 2014). Historic urban areas generally struction techniques.
through encouraging diversity, continuity and flexibility,
meet most - if not all - of these criteria, and
could hence represent a typology of settle- The quest for the decarbonization of urban
developing networks, understanding the human factor ments that allows for low-carbon urban economies and lifestyles has recently put
and the integration of nature in urban areas by enhancing, lifestyles. Beyond the fundamental cultural, great emphasis on the energy efficiency of
protecting and preserving the public domain – the Com- memory and collective identity motivations the built environment. The energy classifi-
mons. In the context of dramatic social transformations, for conserving and upgrading historic urban cation of the building stock has framed the
cultural heritage not only belongs to people but also areas, the massive savings in materials, en- rationale for the retrofitting of existing
place, and these multiple identities may diffuse violence ergy usage and carbon emissions resulting building stock in order to achieve greater
and provide a pride of place and meaning to local commu-
from urban conservation - when compared energy efficiency and reduce related carbon
with demolition and reconstruction of old emissions. However, such retrofitting poses
nities (Sen, 2006). building stock - have become an additional a number of considerable technical, insti-
contemporary rationale. tutional and financial challenges. Building
Possible approaches for decreasing climate change energy retrofits are subject to the law of
impacts would be through better sustainability and urban In developing a climate action plan, cities diminishing returns, whereby the costs of
resilience, such as applying the five ‘d’s: density, typically start with an inventory of carbon additional energy efficiency measures in-
destination accessibility, distance, diversity and design emissions generated from transport, water, crease in much greater measure than the
(Cervero and Kockelman, 1997). Greater flexibility of uses
waste, energy and the built environment energy and carbon reductions they may
(in addition to manufacturing). Historic achieve. Retrofits of residential buildings
and activities, especially in the public domain, will be urban areas score well on urban mobility with fragmented, multiple ownership are
needed rather than fixed, one-size-fits-all solutions. because of the high percentage of non- subject to the hurdles and inertia of collective
Enabling resilience as an everyday occurrence in the city motorized trips due to the nature of their decision-making. The return period on res-
will engender broad benefits for culture, including urban fabric, and their water usage and idential energy retrofits is often measured
harnessing the intangible heritage of the community. waste generation are likely similar to the in decades, not years. In the case of the
ones of modern neighbourhoods. heritage building stock, retrofit programmes
are further complicated by additional, aes-
Unfortunately, heritage building stocks gen- thetical and normative constraints. Listing
Our earthly environment is a very special and perhaps the erally score badly in terms of energy con- and conservation prescriptions and by-
unique setting for life. It should be conserved; it cannot be sumption and related carbon emissions. In laws therefore create additional layers of
preserved. It will change despite us, owing to our intent or to the pre-modern era, traditional design and complexity that discourage much-needed
materials provided some respite from high retrofits.
our heedlessness. To the extent that change is inevitable, we temperatures thanks to thick walls and/or
should at least make sure that it is a humane process and that natural ventilation. In cold climates, heating In order to address these tensions and for
it does not lead to our destruction. On the other hand, many systems using biomass or fossil fuels gen- historic urban areas to play a full role in
needed changes are not inevitable at all. Our real task is not erated some level of thermal comfort, al- the post-carbon urban transition, greater
though with meagre returns on the high collaboration between architects, heritage
to prevent the world from changing but to cause it to change amounts of energy consumed. As contem- conservation and building energy specialists
in a growth-conducive and life-enhancing direction. porary residents and other users of heritage is needed.
Kevin Lynch, urban planner
Applying the Ten Essentials of the UNISdR Resilient

Cities Campaign (UNISdR, 2012) with a new cultural
Governance and civil society input and the human factor is a possible starting point.
Good governance is crucial. The long-term strategy and Local elective officials usually have four- to five-year
vision needed is not something created in an instant, and terms of office and there is an urgent need that long-term
is the outcome and reflection of the past that informs a visions develop achievable milestones through
measured approach for resilience in city management. To cumulative change reflecting these political life cycles.
achieve the objectives as set out in the SdGs, more cross- Furthermore, change in the modern world demands that
cutting interdisciplinary actions and tools are needed. our evaluations and checks cannot wait two decades. A
more dynamic interactive process must be developed,
based on regional and thematic policies.
183
CHaPTer
7 INCLUSIVE
PUBLIC SPACES
Tjibaou Cultural Centre. Nouméa (New Caledonia, France)

©ADCK - Centre Culturel Tjibaou. RPBW - Renzo Piano Building Workshop, Architects, photo: Pierre Alain Pantz*
IN THIS CHAPTER
IN FOCUS
As cultural heritage assets for all citizens

that foster social inclusion, vibrant public spaces Article:
should be accessible to all. Patricia M. O’Donnell, Principal, Heritage Landscapes (USA).
Enabling access to public spaces to advance economic,
environmental and social benefits
Public spaces should be respected,
upgraded and supported by adequate resources, Perspectives:
as protected areas inherited from prior Naima Lahbil Tagemouati, cultural development consultant
and novelist. Urban development and public spaces: economics
generations that can be integral to creative and culture
expression and the transmission of practices Richard Stephens, President, ISOCARP. Culture and urban
of a diverse urban population. planning
Megan Hender, Deputy Lord Mayor of Adelaide (Australia).
Music as a vital player in urban development
Parks and protected areas within and near
a city contribute to its climate change resilience. Case studies:
Dakar (Senegal). A youth-led outlook for the urban fabric
Regenerating and upgrading public spaces Valparaiso (Chile). From reclusion to inclusion: adaptive reuse
fosters creativity
in low-income areas of cities can foster social Marrakesh (Morocco). Intangible cultural heritage as urban
justice and equity. public space, but for whom?
Paris (France). Investing in public spaces and reclaiming
the riverfront
Maputo (Mozambique). Transforming contested spaces
through culture
184
7
ENABLING ACCESS TO PUBLIC SPACES TO ADVANCE
C H A P T E R
ECONOMIC, ENVIRONMENTAL AND SOCIAL BENEFITS
PATRICIA M. O’DONNELL
Principal, Heritage Landscapes, ICOMOS, IFLA (United States of America)
THE COMMON WEALTH OF EVERY CITY IS ITS ACCESSIBLE PUBLIC SPACES, OF VARYING SIZES ANd
TYPES. TOGETHER, THE COMBINEd SYSTEM OF PUBLIC SPACES OFFERS ECONOMIC, ENVIRONMENTAL
ANd SOCIAL BENEFITS TO CITY dWELLERS AS CULTURAL ASSETS OF THEIR CITY FOR ABLE-BOdIEd,
dISABLEd, YOUNG, OLd, MEN, WOMEN ANd CHILdREN. dISCRIMINATION IS THE OPPOSITE OF
INCLUSIVE PUBLIC SPACES

INCLUSION ANd PUBLIC SPACES CAN WELCOME EVERYONE. INHERITEd FROM PRIOR GENERATIONS,
CITIES TAKE THEIR FORM FROM THE LANdS CONSERVEd ANd dESIGNEd AS PARKS, SQUARES, STREETS,
BOULEVARdS, PAVEMENTS, TRAILS ANd AQUATIC ENVIRONMENTS ANd ACCESSIBLE MARGINS OF
STREAMS, RIVERS, LAKES, CANALS, OCEANS ANd MORE. IN SOME FORTUNATE CITIES, URBAN AREAS ARE
AdJACENT TO OR NEAR LARGER CONSERVATION AREAS, RESERVES ANd NATIONAL PARKS THAT SERVE
AS URBAN CULTURAL ASSETS FOR THE POPULACE ANd THEIR VISITORS.
S hared public spaces have been shaped into the form

of urban settlements over millennia. With notable
exceptions for very dense settlements, the urban matrix
URBAN DEVELOPMENT AND PUBLIC SPACES:
ECONOMICS AND CULTURE
of public spaces, which residents use and share with their Naima Lahbil Tagemouati Cultural development consultant and novelist
fellow citizens and visitors, comprises about half the
urban land. The cornerstones of inclusivity, open access
Public spaces, when transformed into a cannot only be measured in terms of
continuous window display, show us, in added value, employment and consump-
and diverse uses of public space by individuals of all ages, the structure of cities, the growing influence tion. Development is also enhanced
families and groups underpins community, fosters of the economic imperative for the perpetual through gender equality, open and mul-
acceptance of diversity and encourages social cohesion. sale of goods and services. Thus, market tilingual education, people’s participation
logic – a powerful tool for regulating the in public life, a method of governance
The heritage of public spaces, coupled with new spaces economy – becomes a problem if forced that protects freedom of expression,
and green design, comprises cultural assets that can offer
on every city and, ultimately, on society. open communication, and the relationship
a system or network of accessible green space for the use
Essentially, this logic is exclusive: it marginal- between a society and its heritage,
izes those who do not have the resources among other factors.
and enjoyment of a diverse urban populace, to include necessary to access the market.
minorities, the poor and migrants. To serve everyone, the If this logical United Nations framework
diversity of urban culture must be welcomed. Historic and The physiognomy of urban and public were applied to every country, the recog-
new urban public opens spaces across the globe should spaces, in particular, is the spatial translation nition of culture’s contribution to devel-
reflect their diverse cultural milieu. Traditional values can of this method of organization. It is influ- opment would be a step towards appre-
be accommodated in public spaces as they are adaptable
enced by the fact that the market tends to ciating the uniqueness of culture in both
assert itself as the only way to regulate
to varied uses for recreation that is social, healthy and
its social and economic dimensions. Culture
and organize space. Under these circum- could then further establish and spread
educational. Public spaces are cultural assets that should stances, can culture help to curb this trend its own discourse, which is built around
welcome everyone to use, engage in decision-making and and build more inclusive cities that integrate such questions as meaning, symbolism,
share benefits. a social dimension into economic growth? connections, cohabitation and identity.
This challenge involves changing the In conjunction with this recognition,

INCLUSIVE PUBLIC SPACES AND THE 2030 dominant discourse, which can only be restoring the cultural function of public
AGENDA FOR SUSTAINABLE
achieved by increasing the visibility of spaces introduces a different way of or-
DEVELOPMENT
the real and total contribution of culture. ganizing life in urban spaces from that
Since the 1990s, steps have already influenced by the market. Indeed, in
been taken in this direction, thanks to urban spaces, it is cultural activities and
The United Nations Sustainable development Goal the work of the United Nations Devel- cultural property that, in creating con-
(SdG) 11, focused on ‘inclusive, safe, resilient and opment Programme (UNDP); gross do- nections and meaning, make men and
sustainable cities’ (United Nations, 2015), provides a core mestic product (GDP) is now recognized women more than just ‘autistic’ con-
target for inclusive public spaces and many other aspects
by experts, international organizations sumers like Robinson Crusoe, the incar-
and governments as being a biased nation of the ideal consumer, insatiable
of human settlements. Urban public spaces address all figure that does not factor in any devel- and with the single aim of consuming
three pillars of sustainability: economy, environment and opment metrics other than added values. the maximum amount of goods. Culture
society. More recently, in 2015, UNESCO estab- transforms cities into something other
lished a logical framework that exhaus- than an accumulation of ‘anti-social’,
The diversity of public spaces offers relevance to several tively lists contributions to wealth from self-absorbed individuals; culture thus
SdGs, and within both goals and targets there are all aspects of culture. This statistical tool elevates people towards something
opportunities for innovation, creativity and expressions
shows that the production of wealth greater: an identity.
of traditional practices as well as respect for heritage. For
example, access to urban gardening spaces, for family use
or for small-plot intensive cultivation for livelihood, the benefits of public space - clean air, a place to walk, and
addresses hunger alleviation, achieving food security and experience of natural elements, offering improved
promoting sustainable agricultural systems; Goal 2 a physical and mental health. In relation to equitable
focus on healthy lives and well-being; Goal 3 promotes education and life-long learning; Goal 4, historic public
185
parks and urban protected areas provide programmes CASE STUDY 82

and self-guided learning opportunities in the realms of Dakar (Senegal)
M
history, ecology, resilience, climate change, health and A youth-led outlook for the
more. The reduction of inequality within countries and urban fabric
the fostering of peace begins at the local level, and
SENEGAL
although not explicitly cited in Goals 10 and 16, inclusive What used to take the form of one-
access to positive experiences in and shared uses of public line hits in train interiors, broadly per-
GAMBIA
spaces, in an atmosphere of mutual respect, fosters ceived as vandalism, graffiti - and by extension street art -
tolerance and social harmony. Further, urban public has progressively become more widely accepted as a bona
spaces - traditional, historically significant and new - offer fide urban art form. Unlike many other cities in the world
a platform for actions to combat climate change and where street art can have an underground and illicit status,
address specific impacts, aligned to Goal 13. Revitalized in Dakar it has become embraced as a ubiquitous urban art
and new parks that are planned and constructed to expression. Walls have become the canvasses for artistic ex-
absorb increased storm water surges, adapt to flooding
pression in the city, under and along highway infrastructure,
or drought, decrease urban temperature with vegetation
colouring buildings, and even commissioned on private
homes. The works nurture public dialogue calling for im-
and provide habitat for resident and migrating species. provements in city life, civic responsibility, celebrating cultural
Urban parks are a particular asset in raising awareness of pride, unity and diversity, local culture and remembrance of
climate change resilience through landscape adaptations, influential leaders across the African continent.
to meet target 13.3: awareness-raising and capacity-
building. As public spaces are often located along With more than half of its urban population under 20 years
waterfronts, leveraging proximity to marine resources of age, Dakar is well-poised to capitalize on its young
aligns to establishing and managing habitat-rich, stable creative talents. Over the past 10 years, Dakar’s street art
shorelines and effectively treating urban waste, relevant has developed into a medium for open, accessible and com-
to Goal 14. Recognition of the importance of waterfronts munity-focused urban culture in the city. The origins of city’s
to urban quality of life has been demonstrated globally
street art are firmly rooted in the Set-Setal movement,
through recapture of degraded waterfronts with new and
meaning ‘be clean-make clean’ in Wolof. Essentially a youth-
led movement, the aim was to address poor civilian stew-
revitalized public spaces. For earth and freshwater ardship of public spaces through murals and public art.
ecologies, parks, streets, boulevards, trails, urban tree
canopy, nature reserves, lakes and streams, as well as The annual Festigraff festival for graffiti art held in Dakar
regenerated degraded lands, all offer opportunities to celebrated its sixth edition in 2015. From the outset, Festi-
achieve Goal 15 and its targets towards restoring and graff has been a creative, youth-inspired initiative that works
promoting sustainable use of terrestrial ecosystems. The to re-imagine and re-engage with the city. The festival fea-
partnerships urged in Goal 17 apply to urban public space tures the creation of art murals and graffiti, street parades,
uplift and extension through good governance and civil training for young artists, conferences and free community
society collaborations that foster inclusive communities concerts. It builds on community acceptance, appreciation
using public spaces as the vehicle.
and resources to foster creative expression, nurture profes-
sionalization, and strengthen artist networks both locally
and abroad. Despite the broad acknowledgment of street
Atmosphere is something that's created by the people art as an engine for developing local culture and tourism in
who use a space and generate spatial activity. To have a Dakar, the festival relies on self-funding and financial sup-
successful public space, you need to allow it to become a port from international cultural agencies such as the Institut
français and the Goethe-Institut.
performative space or an evolutionary space. My
experience is that there's an increasing focus on needing an
artist on board, maybe just as an advisor or a part of the
team, or maybe as a designer. City planning has been way condition of public spaces without adequate care and
too pragmatic and functionally driven for a long time. availability of funding to improve public spaces with green
Olafur Eliasson, artist best practices.
To attain inclusive public spaces, the issues faced by city

governments and their partners concern the equitable
CHALLENGES FOR INCLUSIVE PUBLIC provision and care of public space in terms of distribution,
SPACES open access, and obtaining human and financial resources
for maintenance and ongoing improvements to public
Challenges for inclusive public spaces include competi- spaces. Both processes and outcomes are important as
tion for land in rapidly expanding cities, barriers to equitable, transparent, inclusive planning must underpin
inclusive access to space, programmes and benefits, the shaping of public spaces to achieve the full range of
conflicts between uses and privatization of public community benefits.
space for single uses or business uses, crime and unsocial
behaviours that threaten positive users, degraded
186
C H A P T E R
CULTURE AND URBAN PLANNING
Richard Stephens President, International Society of City and Regional Planners (ISOCARP)
Sustainable development because we cannot succeed at sustain-

ability if we fail to acknowledge human
Sustainable development is a founding aspiration and will, as the ultimate sus-
principle for the contemporary city and taining source of our activities.
regional planning. The classic definition
of sustainable development is ‘develop- In urban planning, regeneration replaces
ment that meets the needs of the present the dualistic thinking about science and
without compromising the ability of future art with a systems approach that promotes
generations to meet their own needs’ culture through sense of place. Sense of
(WCED, 1987). The concept of sustainable place could be described as ‘spatial
'The Weather Project' by Olafur Eliasson (2004). Tate Modern, London (UK) development is evolving, and many ap- culture’ from the physical and intangible
© Damien du Toit/Flickr.com* proaches now include culture as a fourth cultural heritage connected to a place.
pillar of sustainability or an all-encom- In order to preserve, nurture and create
passing sphere that permeates, unifies an extraordinary sense of place, urban
and gives meaning to sustainability. There planning must weave culture throughout
OPPORTUNITIES OF INCLUSIVE PUBLIC has also been a shift from sectoral ap- the practice from inception to implemen-
SPACES proaches to a more integrated view of tation.
sustainability, which mirrors our current
A full appreciation and understanding of the benefits of paradigm shift in thinking from mechanical Placemaking
inclusive public spaces is critically important as cities
to systems models. The inclusion of culture
and the shift towards systems thinking Art and culture are essential to the built
attract increased residents worldwide. These benefits form the basis for an enhanced concept environment, planning process and ex-
include: providing employment; engendering economic of sustainability for city and regional plan- periential design. Integrated architecture,
activity and business opportunities; improving quality of ning: regenerative design. landscaping, public art and public space
life as a factor in choosing a city to live; offering nearby enhance the quality of life, benefit the
opportunity for exercise and improved air quality as Regenerative design economy and create a sustainable urban
factors in personal health; increasing resilience to climate
ecology. Art and culture provide the fea-
The concept of regenerative design is
change; quelling urban heat island effects; providing
tures necessary to create meaningful and
also evolving, and currently it includes memorable places. Infusing art and culture
storm water absorption and management; and uplifting sustainable development combined with into the planning process increases public
the overall perception of city quality. Inclusive public the primacy of ‘sense of place’ viewed participation, encourages collaborative
space is well-used, enjoyed and effectively stewarded by through the lens of systems thinking. design and adds value to development
the community. The democratic use of the commons of For environmental design, this is elo- projects. The planning profession also
public spaces brings together diverse peoples across the quently described by Mang (2001): benefits from art and culture through
social and economic divisions. Culture can flourish within
more holistic approaches, community en-
Regeneration is far more than simple re- gagement and comprehensive visioning.
shared public spaces that are valued and ensured by newal or restoration. Definitions of the Placemaking for sensory experience -
everyone. word ‘regenerate’ include three key ideas: sight, sound, smell, touch and taste -
a radical change for the better; creation must be driven by art and culture that
of a new spirit; and returning energy to collectively and powerfully reinforce sense
Public space dedicated to pedestrians can be an the source. It calls for the integration of of place.
equalizer – a means to a more inclusive society. In public aspects of ourselves as designers and as
human beings - those of spirit and mean- Great places tell great stories. Urban
space people meet as equals, stripped bare of their social ing - that in this era are too often left planners and designers must be great
hierarchies. outside the studio door. It demands that storytellers, and they must do so with
Enrique Peñalosa, Mayor of Bogotá (Colombia) we reunite the art and science of design art and culture.
of public spaces underpins social justice and equity. Equity

SOCIAL BENEFITS for public spaces engages people of all economic levels,
genders, national origins, health and interests.
Inclusive cities offer urban living where all people count,
not a select few. One view offered by the World Bank Research and observation indicate that urban areas
(2015) indicates the complexity of inclusivity as the characterized by lower incomes and informal development
intertwined aspects of the spatial dimension: access to generally suffer from both distributive and contextual
land, housing and infrastructure; the social dimension of inequity, meaning that public spaces are smaller and fewer
rights and participation and the economic dimension of and the open space is of low quality. About one billion
opportunities for all comprising inclusion. Addressing people live in informal settlements which typically lack
inclusivity through spatial, social and economic inclusion basic services as well as nearby public open spaces. The
with removal of limitations to participation, access to issue of distributive equity looms large, as generally poorer
processes of decision-making, and sharing in the benefits areas of cities are underserved with public space in terms
187
of size, quality of design and details and ongoing care. Mi There is a global trend towards recapturing marginal
Parque, a non-governmental organization working with functional spaces from infrastructure areas and corridors
civic partners in Chile, has taken up this cause by securing for well-developed, accessible public spaces. Recent pub-
funding and working hands-on with low-income lic space works in New York City (USA) for the Highline
neighbourhoods to build community through construction recapturing an elevated railway; reappropriation of high-
of shared green spaces, with some 200 projects completed way ramp and marginal space at Sishane Park in Istanbul
to date. Spatial exclusion, lack of access to planning (Turkey); river-edge tiered park shaping in Velenje (Slove-
processes, and inability to gain benefits are all forms of nia); and a new Canal Swimmers Club platform in Bruges
inequity to be addressed by local governments and their (Belgium), have created well-designed areas from for-
partners. mally dysfunctional and unattractive highway margins
PERU SPAIN
CASE STUDY 83 BOLIVIA CASE STUDY 84
(PLURINATIONAL
STATE O
Valparaiso (Chile) Marrakesh (Morocco)
From reclusion to inclusion: Intangible cultural heritage MOROCCO
adaptive reuse fosters creativity as urban public space, but for ALGERIA
CHILE whom?
ARGENTINA
The Parque Cultural Valparaíso (Valparaiso Cul-
tural Park), a repurposed space that previously Jemaa el-Fna Square, a large plaza at the entrance to the
served as a public prison, stands today as a medina of Marrakesh (Morocco), has for centuries been the
major cultural centre of Valparaiso (Chile). The centre houses site of a vibrant set of cultural performances, from snake-
facilities for dance, music, theatre and circus performance, charming to henna-dyeing, from sleight-of-hand, comedy
and has helped promote dialogue among the community shows and acrobatics to music of many types – not to men-
and encourage local cultural practices through fairs and tion the famous storytellers. Herbalists sell incense, scents,
street theatre. In March 2013, the centre hosted a multidis- oils and medicinal herbs from mats set out on the ground;
ciplinary cross-border artistic project ‘Of Bridges and Borders’ juice-sellers sell beverages from their carts; restaurants are
that united more than 20 artists from all corners of the globe assembled on the square each evening, only to be removed
in concerts, exhibitions and creative interventions at the each night when business winds down.
centre and throughout Valparaiso. One of the works, the
900 metre-long mural ‘To Pablo’ by Ai Weiwei, paid tribute The square is inscribed on both the UNESCO World Heritage
to Nobel Prize-winning poet, Pablo Neruda, as a testimony List and the Representative List of the Intangible Cultural Her-
to the power of culture to transcend borders and bring people itage of Humanity. For almost a century, the square has been
together, regardless of background, gender or beliefs. The the focus of national and international efforts to safeguard
mural helped raise awareness of the importance of the cul- its tangible and intangible cultural heritage. Certain perform-
tural park, which previously had not benefited from signifi- ers such as the snake-charmers or henna women could find
cant governmental support, and highlighted its contribution new customers in the increasing numbers of international
to fostering inclusion, building bridges between cultures and tourists. However, some of the musical forms, and storytelling
providing a source of knowledge. in particular, depend on having audiences able to speak and
Source: Pontifical Catholic University of Chile, report for Study Area 8 understand Moroccan Arabic, as well as the three Moroccan
Berber dialects. With fewer daytime passers-by to potentially
be attracted to join an audience circle, such performers saw
their performance opportunities reduced and their livelihoods
Public spaces generally express local culture, often with threatened; tourist-derived revenues could not compensate
favouritism to the dominant or ruling cultural traditions. for the loss of Moroccan spectators.
Cultural diversity can be expressed, through the
adaptability of public spaces to multiple uses that suit The 2001 Proclamation of the ‘Cultural space of Jemaa el-
both dominant and diverse cultural groups. Inclusivity of Fna Square’ as a Masterpiece of the Oral and Intangible Her-
diversity is a foundational element of social cohesion itage of Humanity had similar mixed effects as had earlier
founded in harmony and peace. heritage protection measures. Tooth-pullers were banished
from the square as inconsistent with the expectations of in-
As urban areas grow, absorb the scale of migration and ternational tourists. Activities more likely to appeal to inter-
respond to disasters and strife, there is increased
national tourists take place by day, and activities oriented
more to a Moroccan audience concentrate in the evening
pressure on established and potential urban public space. and night. The international attention brought by the Procla-
Migrants can gravitate towards marginal public spaces mation (and the square’s later incorporation onto the Rep-
such as along highway borders, in the brownfields of resentative List of the Intangible Cultural Heritage of
former industrial sites, abandoned lands and water Humanity in 2008) nevertheless contributed to a discernible
margins. These liminal, utilitarian and polluted voids offer improvement in the social status of the performers in the
opportunities for revitalization as urban public grounds. square, whose occupations had formerly been seen as ques-
As cities densify, underutilized spaces have potential for tionable or even shameful.
housing and/or public space competing for the same Prepared by Frank Proschan
ground.
188
C H A P T E R
The Highline, New York City (USA)

© jbrowning286/Flickr.com*
(Brady, 2016). Enabled by railroad line reuse laws, the PERSPECTIVE 31

Rails to Trails Conservancy in the United States effected MUSIC AS A VITAL PLAYER IN URBAN DEVELOPMENT
the transition of former railroad lines within and between Megan Hender Deputy Lord Mayor of Adelaide (Australia)
communities for 30 years, working with partners to
develop thousands of miles of urban trails.
Adelaide is proud of its status as one of 19 Music has always been at the heart of
cities designated a UNESCO City of Music. Adelaide’s cultural life. Since opening in
1866, the Adelaide Town Hall has hosted
Safety is an important issue for public spaces. Lack of use Adelaide is a vibrant musical mecca, with concerts and remains a favourite performance
and visible degradation are factors that foster illegal and internationally-renowned classical ensem- venue amongst Australian classical musicians.
antisocial behaviours. In twenty-first-century urban open bles, strong programmes for music in ed- The doors of the Town Hall are also open
spaces, perceived safety is also an issue to address in ucation and a thriving live music scene. to artists from many of the above festivals
design and maintenance through keeping view lines clear
We have a long and proud history in who take the opportunity to perform within
music and generating world-class musicians,
and opening areas that are isolated. The factors that make
its venue. Founded in 1883, the Elder Con-
and a terrific and growing number of servatorium is the oldest tertiary music
public spaces work include sociability, uses and music festivals. This has been reinforced school in Australia.
programmed activities, access and linkages, image and by the international recognition that has
appearance. The reverse of these aspects impinge on come with being a UNESCO City of Music, Live music is central to the Adelaide
personal safety. helping to position Adelaide as an exciting City Council’s Creative City Strategy and
and innovative city for musicians, where the South Australian Government’s Vibrant
Providing spaces that adapt to varied use fosters social
music is integrated with economic and City agenda, highlighting music’s role
business development. in a thriving, liveable city and its contri-
interaction. For example, African drumming circles are an bution to economic development. Ade-
impromptu use of paved space for musicians to gather Adelaide is globally renowned for a range laide’s regulatory environment around
and play together. The same type of space can be used for of innovative festivals. Festivals Adelaide live music has shifted to enable en-
a storytelling circle, a local performance or a craft exhibit. is an alliance comprising 10 major arts and trepreneurial activity, including targets
Larger public spaces and streets can host parades, local cultural festivals of the city. for cultural vibrancy and engagement,
festivals and creative events. The commons of cities, what along with policies that aim to energize
is shared by all, when inclusively planned and stewarded,
Adelaide’s development through music.
fosters art, music, craft, and general sociability that
underpins social cohesion and peace.
Public space connects culture and nature in places where
ecosystems, habitat, heritage and human use are all
ENVIRONMENTAL BENEFITS accommodated. The use of native and locally-adapted
plant materials along streets, trails, small grounds and
Public spaces are places for people and nature. As defined parks reinforce local identity and provide habitat.
in the Operational Guidelines of the Implementation of the Research has acknowledged the wide-ranging benefits of
World Heritage Convention (UNESCO, 2015), these trees, for instance, ‘trees in the United States remove
cultural landscapes are the combined works of nature and 711,000 tons of air pollution annually, at a value of
humanity. Urban public space infrastructure systems of US$3.8 billion, not only saving money but also improving
green (plants and soils) and blue (water, wetlands, storm public health’ (City Parks Alliance, n.d.).
water management) yield ecosystems that increase
climate change resilience. In a study of 25 cities, the Worldwide recognition of the opportunities that city
ecosystem services provided by public spaces include: regeneration of degraded areas offers has fostered many
microclimate regulation quelling urban heat island by notable projects. Since the 1990s, the Port Public Space
decreasing ambient temperature and reducing air- Regeneration Project in Tel Aviv (Israel), has fostered the
conditioning demand; water regulation as pervious park revitalization of the central metropolitan area of the city
surfaces absorb and infiltrate runoff, lessening flooding; through upgrading public spaces.1 In Oslo (Norway)
pollution reduction and public health advancement by regeneration efforts have transformed the configuration
improving air quality; improving physical and mental of the built impervious elements of the port, highways and
health through access to green space; habitat provision bridges, reopening the connection of city to sea, the
through biodiverse mosaics of plant and animal species natural environment of the original city site.2
within public landscapes; and cultural services associated
with urban ecosystems with biodiversity linked to
enhanced human well-being through direct experience,
view and ecodesign biomimicry (Elmquist et al., 2015). 1
2
189
Participation in the life of a street involves the ability CASE STUDY 86

of people who occupy buildings (including houses and Maputo (Mozambique)
stores) to add something to the street, individually or Transforming contested spaces
collectively, to be part of it. That contribution can take through culture ZIMBABWE
the form of signs or flowers or awnings or color, or in

altering the buildings themselves. Responsibility, In Maputo (Mozambique), performing SOUTH MOZAMBIQUE
arts such as music, dance and theatre AFRICA
including maintenance, comes with participation.
are creating new dynamics in urban SWAZILAND
Allan B. Jacobs, urban designer spaces often associated with the city’s colonial past, and in
the process are providing conduits to defusing negative public
sentiment towards the city’s colonial-built heritage. Public
spaces, such as the N`tsindza Cultural Centre, the Franco-
ECONOMIC BENEFITS Mozambican Cultural Centre, and old movie theatres, includ-
ing Scala, Gil Vicente, Africa Movie Theatre and Avenida
A broad set of economic values of public spaces, property, Theatre, among others, are becoming important urban
use, health, ecological services and social cohesion, spaces for the transmission of Mozambican intangible her-
demonstrates that the range of economic services itage, particularly Chopi Timbila and Gule Wamkulu rituals
provided can be calculated as either savings or incomes
and dances. The practices stem from different communities
that underpin community wealth (Table 1). From the
across Mozambique and take urban expression through the
migrant communities of Maputo. This has also spurred the
perspective of jobs and spending, in the US capital development of performance-based creative industries
spending and operations of public park agencies generated throughout the city, such as contemporary dance, rap and
US$140 billion in economic activity and provided nearly hip-hop music, and film.
1 million jobs in 2013 (National Recreation and Park
Association, 2015). Also in the United States, the legacy
and promise of the Land and Water Conservation Fund

employs mandated federal funds to leverage matching
contributions to upgrade existing and create new open In Riga (Latvia), the comprehensive plan guides the
spaces. development of urban spatial structure, according to its
heritage basis, while providing new development
possibilities for the city that stimulate economic growth.3
UNITED KINGDOM
CASE STUDY 85 OF GREAT BRITAIN
AND
Focusing on both a heritage asset with open space and

NORTHERN IRELAND
NETHERLANDS
Paris (France) BELGIUM
local neighbourhood improvement in delhi (India), a

LUXEMBOURG
Investing in public spaces GERMANY
project of the Aga Khan Trust for Culture for the area in
FRANCE
and reclaiming the SWITZERLAND

AUSTRIA
and around the Humayun’s Tomb included a local nursery

ITALY
riverfront UGAL
operation with related training and employment and

SPAIN
Paris, the capital city of France, is situated on the Seine River, health benefits of improved air quality from cultivation of
which has remained a defining feature of the city throughout plants.4
its history. From the first human settlements in the Neolithic
In Hamburg (Germany) the HafenCity project, one of the
period, the River has served as a source of sustenance and
largest European transformation actions of the twenty-
a major commercial waterway flowing through Paris to meet
the English Channel at Le Havre. The city’s navigation history
is embodied in the city’s motto fluctuat nec mergitur, mean- first century, reinterprets the public spaces of the
ing ‘tossed but not sunk’. Major city monuments and seats waterfront and maritime history as local identity
of power, justice and religion are located alongside the river. elements and a tourism-directed economic boost.5 As
The river, being one of the iconic elements of the urban land- observed in many places, tourism is both a threat to local
scape of the city, led to the inscription of Paris, Banks of the residents through gentrification and displacement, and an
Seine, on the World Heritage List in 1991. opportunity to gain economic benefits for developers, add
to property tax income for the city and add to local
Like many capital cities built on rivers, Paris is undergoing a employment. This type of undertaking requires project
process of reclaiming its riverfront. The city is focusing on management that includes equity and inclusivity aspects.
improving public spaces, walkability and public transport,
As less affluent neighbourhoods hold fewer and poorer
increasing bicycle lanes and minimizing cars. In 2002, the
City of Paris launched ‘Paris Plage’, an initiative that allows
the city to close the riverbank motorway annually during the quality of public spaces and overall degraded
summer and convert it into a temporary beach and prome- environments, and greater wealth is associated with better
nade. In 2013, a riverside motorway was closed to traffic quality public spaces and higher property values, this
and transformed into a promenade, comprising temporary economically biased distribution is a social justice and
amenities, recreational areas and games. Current Banks of
the Seine projects are part of wider initiatives to reintegrate
3
the Seine into the life of the city. 4
Source: Srishti Institute of Art, design and Technology, report for Study
Prepared by UNESCO Area 5
5
190
C H A P T E R
WOMADelaide music festival 2015,
Jupiter and Okwess International
Photo: Tony Lewis © WOMADelaide
Table 1. AVERAGE VALUE IN US$/HA/Y (2013) OF SELECTED SERVICES PROVIDED BY GREEN SPACES IN
URBAN AREAS
Source: Elmquist et al., 2015
Service Average value (US$/ha/y) Range

1. Pollution and air quality regulation 647 (n = 9) 60–2,106
2. Carbon sequestration (annual flow) 395 (n = 5) 58–702
Carbon storage (stock value) 3,125 (n = 3) 1,917–5,178
3. Storm water reduction 922 (n = 6) 615–2,540
4. energy savings/temperature regulation 1,412 (n = 4) 34–1,908
5. recreation and other amenity services 6,325 (n = 2) 2,133–10,517
6. Positive health effects 18,870 (n = 1) N/A
Total (excl. health effects and carbon storage) 9,701 US$/ha/year 3,212–17,772
equity issue that must be addressed in cities globally. CONCLUSION

Improvements and additions to public spaces in poorer
areas can provide cultural assets but can also fuel Culture, tradition, sustainability and many aspects of
gentrification that through increasing costs leads to contemporary quality of life are intertwined in uplifting
displacement of the resident populace. Emerging tools, old, shaping new, and bringing increased resilience to
like community land trusts, community benefits inclusive public spaces. An integration of approaches to
agreements and local identity or form-based building inclusive public spaces is required as social,
codes offer promise for controlling this real estate dynamic environmental, spatial and economic dimensions of equity
that drives inequity. are entangled.
Widely applied in the United States, the public-private A driving force in global development, increased
civic partnership model for park revitalization is an urbanization targets many cities for continued rapid
innovation that has brought community voices, funding growth, challenging the need to secure inclusive public
and action to urban parks and park systems in Louisville, space. The UN SdGs relate to this reality. With the
Pittsburgh, Hartford, Manhattan, Brooklyn and burgeoning growth of population, it is critical to:
elsewhere. In recent decades, reduced city resources for recognize and broadly articulate the values of public
public space caused deferred maintenance with , resulting space for quality of urban living; encourage local advocacy
in degraded, unmaintained public landscapes. cities for public space quality, quantity, care and use; safeguard
require civic partners who can mobilize communities and and improve existing urban public space; integrate green
garner resources to collaborate in the renewal of parks best practices; and plan for and create new open spaces,
and open spaces. For example, the results of 20 years of particularly in low-income areas. The application of good
activity of the Pittsburgh Parks Conservancy, addressing governance recognizes and acts on the linkage between
some 1,800 acres of public space, has yielded the value of public spaces and sustainable development, respects the
thousands of hours of volunteer park steward work, legacy of public spaces, seeks to improve existing space,
detailed citizen-based comprehensive and project adds new vibrant public spaces and benchmarks local
planning, and more than US$80 million of park renewal public space quantity, quality, distribution and access, so
funding. These efforts have boosted the economy and that inclusive public space is available to all.
quality of life in adjacent areas and throughout
Pittsburgh.
191
CHaPTer
8 SAFEGUARDING
URBAN IDENTITIES
Entrance to the mausoleum of the Shirvanshah’s Palace, Baku (Azerbaijan)

© REZA/Webistan*
Urban heritage conservation is a central

IN FOCUS
component of a development agenda that IN THIS CHAPTER

promotes inclusive, safe, resilient and
sustainable cities. Article:
Eduardo Rojas, Historic Preservation Program, Graduate School
of Design, University of Pennsylvania (USA). Urban heritage for
Adaptive rehabilitation of urban sustainable development
heritage for contemporary uses is an effective
safeguarding strategy, contingent on inclusive, Perspectives:
multi-stakeholder governance and underpinned Gustavo Araoz, President, International Council on Monuments
and Sites (ICOMOS). The view from ICOMOS
by respect for sociocultural values. Stefano De Caro, Director-General, ICCROM (International Centre
for the Study of the Preservation and Restoration of Cultural
Urban heritage conservation needs Property). ICCROM and sustainable urban development:
to move beyond a monument-based, full capacity-building for integrated approaches to conservation
Susan Macdonald, Getty Conservation Institute, The J. Paul
protection and government-financed approach, Getty Trust (USA). Getty outlook on the future of urban heritage
to ensure that urban heritage is not a liability Jean-Louis Cohen, Institute of Fine Arts, New York University
but an asset for cities and their communities. (USA), and Collège de France, Paris (France). Urban culture and
sustainable development
Institutions and most local authority Case studies:
structures, being directly linked to heritage Ballarat (Australia). Towards integrated and comprehensive
management, should form part of a city’s conservation strategies
Salvador da Bahia (Brazil). The risk of cultural tourism
institutional arrangements for promoting Macao (China). Heritage and the wager of commercial
sustainable development. gentrification
Cuzco (Peru). Bolstering community identity through cultural
For cities to be sustainable, urban programmes
Vigan (Philippines). Engaging local communities in heritage
development must be accompanied by policies safeguarding
192
that support all urban communities to make
their cultures sustainable.
8
URBAN HERITAGE FOR SUSTAINABLE DEVELOPMENT
C H A P T E R
EDUARDO ROJAS
Historic Preservation Program, Graduate School of Design, University of Pennsylvania (United States of America)
URBAN HERITAGE, INCLUdING ITS TANGIBLE ANd INTANGIBLE ELEMENTS, IS A KEY SOCIAL, CULTURAL
ANd ECONOMIC ASSET FOR CITIES. INEXORABLY PLACE-BASEd, IT CONSTITUTES A dYNAMIC LAYERING
OF HERITAGE VALUES, CREATEd, INTERPRETEd ANd SHAPEd BY SUCCESSIVE GENERATIONS OVER TIME.
SAFEGUARDING URBAN IDENTITIES

THE TANGIBLE (OR MATERIAL) HERITAGE OF CITIES - OBJECTS, MONUMENTS, INdUSTRIAL AREAS, NAT-
URAL LANdSCAPES, INFRASTRUCTURES, ANd HISTORIC CENTRES ANd NEIGHBOURHOOdS – ENRICHES
THE CULTURE OF COMMUNITIES AS MARKERS OF HISTORY ANd FOR CREATING ANd TRANSFERRING A
SENSE OF PLACE TO NEW GENERATIONS. TANGIBLE HERITAGE ALSO PROVIdES PHYSICAL SUPPORT FOR
A WIdE RANGE OF SOCIAL ACTIVITIES RANGING FROM CELEBRATIONS, POLITICAL dEMONSTRATIONS,
EXCHANGE OF IdEAS, PROdUCTION ANd TRAdE OF CULTURAL PROdUCTS, ANd RECREATION, WHICH
ARE ESSENTIAL FOR THE QUALITY OF LIFE OF URBAN POPULATIONS. THE SCOPE OF URBAN HERITAGE,
HOWEVER, IS NOT LIMITEd TO PHYSICAL ENVIRONMENT. IT ALSO INCLUdES INTANGIBLE HERITAGE, OR
‘LIVING HERITAGE’ - THE ORAL TRAdITIONS, PERFORMING ARTS, SOCIAL PRACTICES, RITUALS ANd
KNOWLEdGE TRANSMITTEd FROM ONE GENERATION TO THE NEXT. THIS BROAdENEd dEFINITION OF
HERITAGE HAS BEEN REFLECTEd IN MORE INTEGRATEd APPROACHES TO THE CONSERVATION ANd
REHABILITATION OF URBAN HERITAGE; ONE THAT EMBOdIES A MORE HOLISTIC VISION THAT CONSId-
ERS HERITAGE WITHIN ITS WIdER SOCIAL ANd GEOGRAPHICAL CONTEXT.
THE SIGNIFICANCE OF URBAN HERITAGE …the participation of individuals and communities in cultural
IN THE SOCIAL AND ECONOMIC heritage matters is crucial, fully respecting the freedom of
DEVELOPMENT OF CITIES individuals to participate or not in one or several communities, to
develop their multiple identities, to access their cultural heritage
In adopting the Sustainable development Goals, United as well as that of others, and to contribute to the creation of
Nations Member States committed to ‘make cities culture, including through the contestation of dominant norms
inclusive, safe, resilient and sustainable’ (United Nations,
and values within the communities they belong to as well as those
2015: Goal 11). The current state of knowledge indicates
of other communities.
that attaining this goal requires: enhancing access to the
human development opportunities offered by cities to all
Farida Shaheed, former UN Special Rapporteur in the field of cultural rights (2009 to 2015)
citizens (inclusive cities); guaranteeing that all city

dwellers can live free of threats of violence (safe cities)
and natural disasters (resilient cities); and ensuring that of a development agenda that promotes inclusive, safe,
satisfying current needs does not endanger the right of resilient and sustainable cities. Making a place for urban
future generations to satisfy their own (sustainable cities). heritage in the development agenda, however, is not
sufficient. There is also the need to ensure that the tangible
In addition to reducing the environmental footprint of and intangible assets provided by urban heritage are well-
future city growth and expanding development managed, and that they are effectively utilized according
opportunities, achieving Goal 11 requires safeguarding to their developmental potential.
the culture of cities, encompassing their intangible and
tangible assets. It is the ‘common wealth’ of every city (see DEVELOPMENT-FOCUSED URBAN
Chapter 7) and the brace linking the economic, social and HERITAGE CONSERVATION: KEY ISSUES
environmental dimensions of development (see Chapter AND APPROACHES
6). In cities, where interaction and cooperation are
essential ingredients of change and innovation, culture is Communities today are increasingly aware of the full
not only a legacy but ‘a force of renewal’ (BOP range of values of the urban heritage, and are acting
Consulting/ Mayor of London, 2014). accordingly. This trend is grounded on a richer
understanding of the ‘sociocultural’ and ‘economic’ values
The loss of the sociocultural benefits provided by urban of urban heritage in its multiple manifestations (Throsby,
heritage can undermine the community’s capacity to 2012). The conservation of buildings and public spaces of
develop and share the benefits of development among neighbourhoods and cities is broadening from being a
its members. The wise management of the cultural her- concern of the cultural elite - seeking to prevent the loss
itage of cities is as important for the social and economic of the historic, aesthetic, scientific or spiritual values
development of a community as that of other commons, contained in the urban heritage - to a wider variety of
such as the environment and privately-owned resources social actors interested in its symbolic and social values
like capital and labour. (Table 2). These actors include governments seeking to
prevent the disappearance of emblematic components of
There is a strong rationale for including the conservation the urban heritage - its existence value - to ensure that
and development of urban heritage as a central component sociocultural values are transferred to future generations
193
- its bequest value - or at least that they will be available

CASE STUDY 87
for future generations to enjoy even if today’s generations Ballarat (Australia)

do not know what to do with it - its option value. Towards integrated and AUSTRALIA
Furthermore, in many cities, households, entrepreneurs comprehensive conservation
and property investors are interested in the economic use strategies
values of the urban heritage: its capacity to accommodate
contemporary demands while retaining the attributes In Ballarat (Australia) urban regener-
that confer its sociocultural values. These values can be
ation strategies inclusive of local communities are a priority
of direct use when it has worth as a private good bringing
in response to the impact of the significant urban transfor-
mations and climate change currently affecting the city. As
in cash flows from rentals or sales, or is the result of one of the fastest-growing regional cities in Australia,
secondary impacts when the sociocultural values of the Ballarat’s population is set to increase by 60% by 2040.
heritage increase the market price of the surrounding Through the adoption of an integrated, comprehensive de-
properties - its indirect use value (Rojas, 2012). velopment strategy, which encompasses the Historic Urban
Landscape (HUL) approach in its evolution, the city is man-
P E R S P E C T I V E 32 aging to maintain its unique identity by placing heritage at
THE VIEW FROM ICOMOS the heart of well-being and sustainable development.
Gustavo Araoz President, International Council on Monuments and Sites (ICOMOS)
Ballarat was the first city in the world to implement the pilot
The central mission of ICOMOS is to that led to the emergence of nation programme for the 2011 Recommendation on the Historic
achieve the best possible protection for states were identified by experts and Urban Landscape, involving a wide range of stakeholders
the cultural heritage of all cultures through used to create and reinforce a single
from universities, State and local governments, NGOs, ICO-
intercultural and interdisciplinary coop- cultural identity that would ensure na-
MOS Australia, local organizations, the private sector and
eration. Our work has made it clear that tional unity. In such a way, it was heritage
heritage is for all human communities by decree and not by consent. Today,
civil society. In line with the HUL approach, the city em-
as the repository of important memories the recognition of the tangible and in- ployed a holistic approach to conserving the city’s urban
of the past that shape the aspirations tangible heritage of long-overlooked mi- heritage, integrating the goals of conservation with those
for the future. That is why it is intriguing norities must be identified not by experts of social and economic development and local community
that so many have resisted accepting but by the stakeholder communities values. Civic engagement and collaboration were considered
the notion that culture and cultural themselves. If given official recognition priorities in the identification of heritage and decision-mak-
identity are essential for the sustainability and protection, and properly interpreted ing processes. Planning and acquiring knowledge and infor-
of all human communities since they lie for the public, these heritage components mation, monitoring and assessment, regulatory systems
at the very foundation of all human de- can do the same to help advance our adapted to the local context and financial tools were also
velopment, especially sustainable urban sustainable development goals. considered essential to building capacities and supporting
development. The hope for a better life public and private investment and partnerships. In 2015,
is a trait shared by all humanity, but Of course, it is now acknowledged that the city launched the HUL Ballarat website and Visualising
that better life has to come in ways that what makes cities in general - and Ballarat mapping tool, which enabled greater collaboration
allow for the ethos, traditions and beliefs historic cities in particular - valuable with a wide range of organizations and local citizens.
of each community to shape such a goes beyond being a territory studded
future. with past architectural achievements or In 2015, the Ballarat City Council adopted ‘Today Tomorrow
with public spaces that allow for histor- Together: The Ballarat Strategy’, the city’s long-term devel-
Cities are characterized by conglomerates ically rooted communal rituals and ac-
opment vision until 2040. The Strategy aims to promote Bal-
of heterogeneous urban groups living tivities to recur periodically. Cities are
larat as a more environmentally-friendly and connected city
in close proximity and interacting in in- complex and dynamic organisms that
numerable interdependent ways. For
and addresses issues such as growth, infrastructure and
evolve constantly to meet the economic,
this reason, urban areas have historically social, cultural and emotional needs of planning. It was developed as a result of public consulta-
developed their own particular culture each generation. As stated in the 2011 tions based on the HUL, resulting in nearly 6,500 responses
that serves as a unifier for its citizens, Recommendation on the Historic Urban that highlighted heritage as a highly-valued asset for Bal-
which is essential as a social contract Landscape, the inextricably linked human, larat’s citizens and to the future development of the city.
for peaceful coexistence and social co- cultural and natural resources of cities
hesion. Ignoring culture and heritage need to be managed through integrated Projects undertaken by the Ballarat local authorities have
renders sustainable urban development approaches that will retain the evidence enhanced the application of the HUL, including empowering
unattainable. of its historic evolution while at the communities and strengthening local capacities in conser-
same time providing an environment vation management, harnessing civic engagement in adap-
The recognition and protection of cultural that will allow all members of each gen- tive reuse, supporting arts and cultural programmes and
heritage places that have played impor- eration of the community to continue to institutions, and applying innovation to address environ-
tant roles in the life of the urban com- thrive and prosper in accordance with mental issues such as water.
munity can play an important healing their cultural identity. In other words, to
role by bringing into the public focus be sustainable, urban development must
the contributions of a richly diverse be accompanied by policies that give
society. In the not too distant past, her- the means to all urban communities to
itage places associated with the events also make their cultures sustainable. using the adaptive rehabilitation of heritage sites for
contemporary uses as a valid conservation strategy. The
economic values attract more stakeholders and resources
The most significant policy implication of a wider to the task. The direct use values promote adapting
appreciation of the sociocultural and economic values of buildings and public spaces for contemporary uses,
urban heritage is that it provides a conceptual basis for including social- and market-based activities capable of
194
C H A P T E R
Table 2. VALUES OF URBAN HERITAGE
Source: Eduardo Rojas, elaboration after Throsby, 2012
Sociocultural values
Value Definition

Historic The building or site provides a connectedness with the past and reveals the origins of the present
Aesthetic The building or site possess and displays beauty
Scientific The building or area is important as a source or object for scholarly study
The building or site contributes to the sense of identity, awe, delight, wonderment, religious
Spiritual recognition, or connection with the infinite experienced by both the community living in or
around the site and those who visit the site
The building or site conveys meaning and information that helps the community to assert
Symbolic
its cultural individuality
The building or site contributes to social stability and cohesion in the community, helping to
Social
identify the group values that make the community a desirable place in which to live and work
Economic values
Value Definition
direct worth of buildings as a private good. Their potential to accommodate residential,
commercial, services or other uses with demand in the property markets and for which
Use Direct consumers direct worth of buildings as a private good. Their potential to accommodate
residential, commercial, services or other uses with demand in the property markets and for
which consumers will be willing to pay a premium rent due to the heritage value of the asset
Indirect Value accruing to others (passive use)
Communities value the existence of the heritage, even though they may not directly consume its
Existence
services, and are willing to invest resources for its safeguarding
Communities wish to ensure that their members or others will have access to the heritage in the
Non-use Option
future, and are prepared to commit resources to its conservation
Communities wish to bestow the heritage for future generations, so devote resources to its
Bequest
conservation
paying for the rehabilitation and upkeep of the assets. The CASE STUDY 88 UELA GUYANA
non-use values - existence, option and bequest - justify

SURINAME
FRENCH GUIANA
Salvador da Bahia (Brazil)
spending public and philanthropic resources for its The risk of cultural tourism
conservation (Rojas, 2016). The challenge of this
approach is to conserve the social and cultural memory of Salvador de Bahia is known as Brazil’s
P BRAZIL
cities through sound adaptive reuse of its material urban

LIVIA
‘capital of happiness’, whose ethni-
heritage that both makes use of its development potential cally-diverse inhabitants are proud of PARAGUAY
and preserves its authenticity. their cultural diversity, and share this RGENTINA
through their creativity and heritage. The city’sU annual street
With variations in the scope and depth of use, there are
carnival is the largest worldwide, and the city hosts numer-
many examples of the successful use of a development-
ous outdoor cultural events throughout the year. Similarly,
the city’s image has been branded with an understanding
focused approach to urban heritage conservation in of the value of urban heritage and culture for tourism.
well-conserved and dynamic historic centres and
neighbourhoods. The historic centre of Verona (Italy), for The Historic Centre of Salvador de Bahia, a UNESCO World
instance, retains a wide variety of economic activities that Heritage property, was the subject of one of the country’s
service a regional economy (Stumpo, 2011). In North most ambitious urban renovation projects beginning in the
Africa, the medina of Marrakesh (Morocco), is intensely 1990s, involving significant government funding and result-
used for commercial, social and religious activities, while ing in the recovery of many deteriorating and abandoned
maintaining its landmark buildings and the features of its buildings. Tourism experiences imported from Europe and
townscape (Bigio et al., 2011). There are success stories North America become a panacea for addressing urban de-
in all continents that compare well with the emblematic
generation issues, and formed the basis of strategies to re-
and well-known urban heritage conservation experiences
vitalize the city’s core. Harnessing the model of cultural
tourism, however, has proven to be a drawback, and today
of cities in Europe and North America that use adaptive the key conservation issue for the city is recovering the his-
rehabilitation for economic revitalization. toric centre from exclusively touristic use.
Source: Coimbra University, report for Study Area 8
195
The role of good governance that comes from participating in public celebrations.
The characteristics of urban heritage pose significant Citizens cannot be denied the enjoyment of the beauty of
challenges for its governance. Using Bell’s (2002) the façades of private buildings that contribute to the
definition of governance to analyse the management character of the cityscape. These ambiguities are at the
structures in several cities, Rojas (2016) asserts that the heart of the difficulties encountered by communities in
traditional institutions and structures of authority that managing these commons.
regulate and coordinate the activities and interests of the
variety of social actors in urban heritage areas are not In most countries, the existing governance arrangements
working well. Most buildings are privately owned and involve limited stakeholders, severely restricting the use
their access has a price determined by property markets. of the heritage properties, and charge the central
However, the attributes that give them their sociocultural government with the bulk of the conservation costs. This
heritage value are often available to all members of a turns conservation activities into an urban and fiscal
community and are, therefore, held in common. liability for communities (a restriction to the development
Everybody owns the main square of a historic town and of the heritage properties and a source of public and
no one pays for the sense of belonging to the community private expenditure for their upkeep). The current mon-
ument-based, full protection, and government-financed
P E R S P E C T I V E 33 approach that restricts the use of protected properties
ICCROM AND SUSTAINABLE URBAN DEVELOPMENT: CAPACITY- and relies almost entirely on public funds is incapable of
BUILDING FOR INTEGRATED APPROACHES TO CONSERVATION tackling the vast urban heritage of most communities and
Stefano De Caro Director-General, ICCROM (International Centre for the Study of the of sustaining conservation efforts in the long term. A de-
Preservation and Restoration of Cultural Property)
velopment-focused approach to conservation needs to
ICCROM has been involved with capaci- being of people became a central part of expand the range of stakeholders in decision-making and
ty-building in heritage conservation and ensuring successful conservation of the the resources required to attract private sector actors
sustainable urban development for more heritage. At the conclusion of the ITUC (households, consumers, property investors) by allowing
than 20 years. In order to have a truly programme in 2005, ICCROM followed the adaptive rehabilitation of heritage properties for con-
sustainable urban development, there is up with the programme Living Heritage temporary uses. This turns the heritage into an asset for
their social and economic development (capital capable
a need for a fully integrated approach; Sites (which eventually became People-
one that finds the appropriate meeting Centred Approaches to Conservation).
point between social and economic benefit This programme has continued to promote of producing a sustained flow of sociocultural and
as well as environmental protection. capacity-building in sustainable urban economic benefits) (Rojas, 2016). To accomplish this, the
These principles underpinned the start development by working with heritage governance of urban heritage conservation - structures
of the ICCROM programme ITUC (Inte- professionals to integrate social and eco- of authority, institutions and financial arrangements -
grated Territorial and Urban Conservation), nomic concerns into their conservation require major adjustments to effectively ensure that cities
launched in 1995. practice. are inclusive, safe, resilient and sustainable.
Reforming authority structures: from

This concept of integration has grown While working side by side for 40 years
rigid and elitist to flexible and

and expanded over the years. In the within the framework of the 1972 World
early years of the ITUC programme, inte- Heritage Convention, ICCROM, ICOMOS,
gration came primarily with the realization and IUCN have only recently begun to participatory
that any successful urban conservation explore ways to ensure better integration The first challenge is to decide what to conserve and how
efforts should not focus solely on the in the management of cultural and natural much conservation is needed to ensure the urban heritage
conservation of the buildings that comprise heritage. This interchange is being carried retains its sociocultural values. A key question is who
decides? When the conservation of the urban heritage is
the urban fabric. Rather, there was also out through a joint ICOMOS/IUCN project
a need to integrate historic urban areas on Connecting Practice, and on a joint
into their surrounding territories, leading ICCROM/IUCN capacity-building pro- the concern of the cultural elite, only a limited variety of
to greater emphasis on a cultural land- gramme on the management of cultural social actors participate in the decisions, and concerns for
scape approach. These first efforts by IC- and natural heritage. Focus will be on the historic, aesthetic or religious sociocultural values
CROM could be seen as precursors to managing mixed World Heritage prop- predominate. The isolated decisions of a few social actors
the eventual development of the 2011 erties, managing cultural values in natural lead to a partial valuing of the urban heritage and a limited
assessment of what to conserve and the means by which
Recommendation on the Historic Urban World Heritage Properties and, most im-
to do it. The development-focused approach to urban
Landscape. With regard to capacity-build- portantly for sustainable urban develop-
ing, this meant that ICCROM training fo- ment, managing natural values in cultural
cused not only on conservation architects, World Heritage properties. heritage conservation requires a wider appreciation of its
but also on urban and landscape planners, multiple values, a situation that emerges when the
city managers and others involved in As we move forward with our efforts to valuation process incorporates the views of residents and
the overall planning and management build capacities, ICCROM will continue users of the heritage area: property owners, formal
of urban areas and their surroundings. to work with partners to promote heritage entrepreneurs interested in investing, informal users and
producers, and private actors. Also needed are the inputs
conservation in the overall sustainable
As ICCROM continued to develop its urban development agenda. Solutions
ideas on sustainable urban development, must be found which equally integrate of regional and local government entities that can have
the concept of integration also began to all three of these pillars, and ICCROM different views to central government entities about the
mean a much fuller involvement of com- strongly believes that cultural heritage values to preserve. The conservation of urban heritage
munities within the conservation process. can be used as an important driver for beyond the individual monument of national or regional
A focus on the social and economic well- this process. importance can only be politically viable if the local
196
C H A P T E R
ICCROM course on People-Centered Approaches, 2015
Photo:Selma Kassem © ICCROM
stakeholders - who will bear many of the costs and will be Local actors bear the greatest burden in the conservation
the direct beneficiaries of the conservation - are willing to of urban heritage (development limitations and
support the effort. expenditure of public resources) and they should have a

MONGOLIA
prominent voice in these decisions. Urban heritage
conservation needs to be fully integrated in the
C A S E ST U DY 89 DEMOCRATIC
PEOPLE’S REP
OF KOREA
governance of the urban development process of each

REPUBLIC
Macao (China) OF KOREA
JAPAN
Heritage and the wager of CHINA city, with national and regional cultural entities playing a
commercial gentrification H subsidiary role in taking care of monuments of national
and regional importance, and providing the legal and
NMAR VIET NAM
operational framework for local decisions. Efforts to

Macao, officially known as the Macao Special Administrative
conserve urban heritage in many Latin American
Region of the People's Republic of China, bears witness to a
lengthy confluence of cultural interchange of East and West,
whose historic centre was recognized as a UNESCO World countries, including Argentina, Chile and Uruguay, are
Heritage property in 2005. The city presents as a kind of tril- excessively burdened by the central or regional
ogy: a historical centre with relatively low density; extensive governments that enact most of the legislation and
monofunctional areas with modern casinos and shopping finance the majority of urban conservation programmes.
centres; and an older, highly-densified multifunctional city. The evidence of poor results from top-down conservation
efforts like those of Salvador de Bahia (Brazil) (Mendes
Faced with large-scale gentrification in the city’s historic cen- Zancheti and Gabriel, 2011) or Valparaiso (Chile) (Trivelli
tre, local commerce has struggled to compete with rising and Nishimura, 2011) supports the recommendation for
rental costs. Street vendors and shopkeepers have been dis- institutional reforms.
placed and traditional commerce has relocated to other
areas of the city. Products for sale are catered to a new target P E R S P E C T I V E 34
client: the thousands of tourists who visit the city on a daily GETTY OUTLOOK ON THE FUTURE OF URBAN HERITAGE
basis. A plethora of jewellers, casinos, designer clothes Susan Macdonald Getty Conservation Institute, The J. Paul Getty Trust (United States of America)
shops and beauty products are now commonplace – meet-
ing the demands of visitors coming from the Chinese conti- The past century has been one of unprece- conservation in the sustainable development
nent. The resident population avoids the historical centre, dented change in terms of impact on the of the urban environment with a view to
which is increasingly becoming the backdrop for one-day urban environment. Globalization, rapid developing useful tools and approaches.
uncontrolled development, demographic
visits and the occasional photograph on the way to a local
changes, economic pressures and climate Regardless of the cause of change affecting
casino. Gentrification processes have shifted the relationship
change are the main factors driving change urban environments - growth or decline -
between culture and economics in the city, progressively in the urban environment, which directly the first step in the conservation and
driving out local inhabitants from the historic centre by tai- impacts the conservation of historic urban planning process is to understand what
loring the uses of urban spaces to market demands. environments. Immigration and population we have; which places, activities, practices
Source: Coimbra University, report for Study Area 6 growth leads to rapid urban expansion and communities define cultural significance
and increased density within historic areas, and how and which of these do we wish
Conservation instruments need to move from being
while smaller rural centres are suffering to sustain, conserve or regenerate? Increasing
from emigration resulting in obsolescence, recognition of the many values that con-
restrictive and norm-based to incorporate flexible norms abandonment and/or stagnation. These tribute to the cultural significance of a
and regulations, allowing for adaptive rehabilitation of opposing conditions of growth and decline, heritage place, beyond the bricks and
heritage for contemporary uses. Restricting the use and which can often be regionally interrelated, mortar, demands new tools that map and
development of heritage properties induces owners to are symptomatic of larger social, economic, inventory these in ways that capture not
abandon the heritage, thus triggering its deterioration and cultural factors that shape a country’s just the tangible and intangible values but
and, often, eventual demolition. development-oriented
or region’s development. They bring positive also the relationships between them. Recent
urban heritage regulations that enable new uses will
and negative change to historic urban technological advancements have improved
areas; the conservation of these places is the tools that provide geospatial capacity
facilitate more sustainable processes. The flexibility determined by how successfully they are and the ability to identify relationships be-
advocated for most private buildings is tempered by the managed. Although each city or urban tween places, patterns of use, people and
need for a more traditional approach concerning area has its own particular set of conditions activities that may contribute to their cultural
monuments and public spaces of national importance that result in specific responses, common significance. The GCI’s work has included
requiring full conservation. The Conservation Plan for the patterns and trends are evident. UNESCO’s the development of tools such as the Arches
Historic Centre, implemented since the mid-1990s by the
Historic Urban Landscape initiative has pro- inventory and heritage management system
vided a framework for a wider understanding to achieve this aim. Further work to develop
Municipality of Cartagena (Colombia), is a good example of historic urban environments – what is governance structures and policy frameworks
of how flexible regulations for change and adaptation of now needed are practical tools and methods that can then sustain these relationships
heritage buildings have supported economic use values that lead directly to conservation. The GCI and integrate conservation within the larger
while conserving the attributes that beget their has focused on addressing various specific planning and urban development context
sociocultural values (Rojas, 1999). challenges to integrating cultural heritage are still needed.
Restructuring urban heritage conservation

institutions: from national to local Operationally, a development-based approach to the
Most of the institutions and structures of authority governance of urban heritage conservation is demanding
needed to implement this approach are directly linked to in institutional and human resources. Conversely, the
the management of the local affairs of the community. approach offers the opportunity to engage the talents and
197
resources of a wide variety of stakeholders and to increase CASE STUDY 90

the volume of resources flowing to the task. Only cities Cuzco (Peru)
BRAZIL
with well-established urban development management Bolstering community

institutions and practices would be able to accomplish this identity through cultural PERU
objective. Cities and communities with less-developed programmes

institutional arrangements could seek more ad hoc
solutions, such as the designation of the urban heritage Cuzco’s rich cultural heritage rooted in the Inca Empire and
area as a special district supported by higher-tier the Viceroyalty period of Peru is embodied in sites across the
government institutions. city. The city’s attributes that reflect 3,000 years of indigenous
and autonomous cultural development in the Peruvian south-
Financing the conservation of urban ern Andes anchored the property’s inscription on the World
heritage: a shared effort Heritage List in 1983. The ancient Coricancha Inca temple
In addition to the government resources needed to now converted into the Santo Domingo Convent and the
conserve the existence, option or bequest values of the
neighbourhood of San Blas, where colonial houses were built
urban heritage, the reforms advocated above involve
on the foundations of Inca sites and superimposed with ex-
isting constructions, have been strengthened and promoted
putting into play the economic direct use values. This through cultural activities led by the Municipal Government
brings in resources from a wide variety of stakeholders and the Ministry of Culture of Peru.
that are not usually active in traditional approaches, but
will do so if the heritage area is an attractive place for While the area surrounding the Plaza de Armas is the
living and conducting business (see also Chapter 12). favoured location to celebrate Cuzco’s festivities, the San Blas
Attaining this condition is in part a government task, as it neighbourhood is widely known as the arts and crafts centre
requires good infrastructures and public spaces, of Cuzco. Constituting the historic centre of Cuzco, these two
accessibility and citizen safety, and a flexible and efficient areas are often at the centre of cultural development initia-
urban management structure for regulating the adaptive tives. For instance, a Heritage Project for Development was
rehabilitation and the operation of the new business in
jointly established by the Spanish Agency for International
urban heritage areas.
Cooperation and Development (AECID) and the City Council
to halt the deterioration of monuments, and a school work-
shop was set up focusing on conservation, restoration and
Quito (Ecuador) greatly improved the quality of life of its rehabilitation of cultural heritage for social development
historic centre through collaborative efforts between the through traditional crafts. The Earth Project was developed
local and central government and diverse partnerships to strengthen traditional knowledge for sustainable devel-
with private property owners, foundations and charitable opment, an initiative supported by other city-run projects
institutions (Jaramillo, 2011). In Edinburgh (Scotland), six seeking to safeguard ancestral Andean technologies and en-
community associations in the historic centre actively sure the continuity of Cuzco’s living culture.
cooperated with the Edinburgh World Heritage Trust (a Source: Pontifical Catholic University of Chile, report for Study Area 8
private foundation), the City of Edinburgh Council (the
local authority) and Historic Scotland (a national entity)
in the design and implementation of interventions to Legitimizing the contributions of
preserve and develop the New Town (Zappino, 2011). heritage: the starting point
These examples have established institutions, regulations Today, there is an urgency to increase the awareness of
and procedures for fruitful cooperation processes among city managers, local councils, community associations, pri-
a wide variety of stakeholders, whose contributions have vate investors, households and consumers of the contri-
been channelled to benefit the sustainable preservation bution of urban heritage to the sustainable development
and development of their heritage. When the urban of cities. Early action by cities prevents heritage deterio-
heritage area is of national or regional significance, there ration and destruction, therefore allowing more tangible
are good reasons for national or regional governments to and intangible heritage assets to be available for the sus-
provide grants and other subsidies, reflecting the tainable development of cities. The numerous cases of
character of public good of well-conserved urban heritage well-managed urban heritage areas that contribute to the
and the responsibility of regional or national communities economy of cities and the quality of life of their popula-
to support its sustainable conservation. tions is proof of the benefits that can be gained from these
efforts. However, the road ahead for cities committed to
improving their performance is long and complex.
CONCLUSION
The most basic step in improving the management of
It is time to put urban heritage in its proper place as a de- urban heritage is to provide a ‘voice’ for its contributions
velopment asset; time for urban heritage to become a to the socio-economic development of cities and the
fully-integrated component of the sustainable develop- challenges faced in its sustainable preservation and
ment of cities. The above-mentioned characteristics of development. Cities need to engage in debate about their
governance mechanisms offer a promising future for the heritage, promote analyses of its multiple values, identify
conservation of urban heritage and in contributing to the the threats to its preservation, and strengthen the value
economic and social development of communities. of its contributions to the sustainable development of the
198
C H A P T E R
Reconstruction of mausoleums, Timbuktu (Mali)
© UNESCO/F. Bandarin
city as suggested by the 2011 Recommendation on the P E R S P E C T I V E 35

Historic Urban Landscape. URBAN CULTURE AND SUSTAINABLE DEVELOPMENT

Jean-Louis Cohen Institute of Fine Arts, New York University (United States of America),
and Collège de France, Paris (France)
The second step is to give ‘political legitimacy’ to conserv-
ing urban heritage. A long and considered debate about In terms of sustainable development, the devotion that guarantees its conservation
urban heritage’s contribution to the sustainable develop- starting point for any policy involves, and is expressed through political move-
ment of the city will transform ill-based perceptions of without a doubt, examining the conser- ments, associations, residential or commercial
conservation as an urban and fiscal liability to view urban vation of existing resources. For urban practices that preserve the vitality of neigh-
heritage as a development asset for the city.
spaces, rather than destroying historical bourhoods and individual actions.
buildings and sites without any guarantee
of replacing them with new and improved The path to this fervent attachment is not
C A S E ST U DY 91 long-lasting structures and landscapes, through scholarly knowledge of buildings
would it not be better to first preserve and their history, although being able to
Vigan (Philippines)
places that have stood the test of time, name, date and analyse the places they
Engaging local communities in and whose replacement, if at all possible, feel close to helps people to measure their
heritage safeguarding would require significant intellectual and value and thus defend them. The relation-
PHILIPPINES material capital expense? ship between people and the setting of
The ancient city of Vigan (Philippines) their day-to-day activities is also expressed
is renowned for its well-preserved Spanish colonial archi- The preservation of individual buildings, through various media including cinema,
tecture and planning and its fusion with Asian building de- complexes and landscapes, with their sup- literature and songs, which contribute to
sign and construction. These distinct attributes contributed porting infrastructure, is a decisive strategic creating a collective memory, without
to the inscription of the property Historic City of Vigan on challenge, and the contribution of cities which no legal or technical procedure
the UNESCO World Heritage List in 1999. and their culture does not stop there. could ever perpetuate the smallest fragment
Culture is crystallized in architectural and of the city. A city is only lasting if memories
Central to the sustainability of the property is the engage- landscape heritage, and enhanced by the are manifested, maintained, renewed and
ment and involvement of the local community in the con- urban experience – the daily rituals of a continually revived, without which the his-
servation and management of the property. By empowering city, both prosaic and spiritual. torical and rememorative values evoked
the owners of the heritage houses, teaching institutions, by Aloïs Riegl in the seminal work The
Sharing streets and squares, frequenting Modern Cult of Monuments: Its Character
artists, craftspeople and business owners, the local commu-
public places and transport, and all pathways and Its Origin (1903) would not be associ-
nity has become the primary stakeholder of the tangible and
that make up urban life lead people to ated with values of contemporaneity and
intangible heritage of the property. take charge of their city. It is precisely this development.
Over the past few decades, the local government has fo-
cused on leading development through engaging all stake- a broader array of the heritage assets of a city. The public
holders in conservation-based policies. Heritage education institutions caring for urban heritage should be inte-
is incorporated in the formal education system, and local or- grated into the core of the group of agencies promoting
ganizations, such as homeowners’ associations, are sup- the social and economic development of the community.
ported through training initiatives in the low-cost restoration
of their houses. Similarly, revenue generated from local cul-
tural products and tourism is used to fund the ongoing
maintenance of historic buildings, thus contributing to en- By affirming that what not even time can cancel is the genius
suring a self- sustaining city. Such strategies have demon- loci, I want to underscore that every place possesses its own
strated that empowering the community and local particular identity and this is the proper task of man to comprehend
stakeholders in safeguarding heritage is key to ensuring that identity and take care of it, through a process that evidently
sustainable urban development.
will never come to an end.
Prepared by UNESCO
Christian Norberg-Schulz, architect
Promoting stakeholder cooperation: a

necessary condition The regulations affecting the use of tangible heritage
The sustainable conservation and development of urban must progress from preventing changes to its attributes
heritage areas requires overcoming the shortfalls of the and uses towards promoting the sensible adaptive reha-
market and the government in the management of these bilitation of the urban heritage to satisfy contemporary
commons. This can only be achieved through cooperation needs. Procedures for managing tangible urban heritage
by: a social accord that combines the advantages of good need to move away from transferring all preservation
public governance with those of efficient markets; engag- costs to the private owners of monuments and buildings
ing the cooperation of all stakeholders; and making the towards mechanisms that coordinate the contributions
management of the urban heritage a task of all social of all interested stakeholders in preserving and develop-
actors (Rojas, 2016). Urban communities need to revise ing the heritage assets, including the government, private
the role and position of the institutions caring for their philanthropy and the beneficiary communities. The corol-
heritage. This role must evolve from a concern solely for lary of this statement is that the preservation of urban
the preservation of monumental heritage to one focused heritage should cease to be the sole responsibility of the
on the sustainable use, preservation and development of government - local, regional or national.
199
200
SECTION C
POLICIES
SECTION C
Integrating culture
in urban policies to foster
sustainable
urban development
The individual was ‘born to live in complex organization

with his or her fellow creatures, in community and harmony,
through compromise, but united through a common purpose,
which is to live a shared life’.
201
Istanbul (Turkey)
© REZA/Webistan*
T
his final section provides nu- another challenge is the complex
merous perspectives on how relationship between rural and urban
culture can be integrated into areas, as well as the larger cultural
public policies to foster sustainable landscape. Today, public policies are
urban development and examines often defined and implemented in
some of the challenges of governance. isolation, and remain unresponsive
Cultural assets, goods and services to the intricate and interdependent
transcend traditional institutional di- cultural relationships between cities
visions, touching upon museums, the and the countryside, as well as those
film industry, tourism and the natural between small settlements and cul- particularly through a series of work-
environment, to name but a few. turally significant natural landscapes. shops in Swahili coastal cities in 2011
However, legislative frameworks, along and 2012, sparked a re-evaluation of
with budgets and oversight measures, By way of policy advice, UNeSCO’s urban conservation. The objectives
often address these sectors in isolation. Conventions for the safeguarding of of the 2005 Convention are also being
Thus, opportunities for dynamic, flex- tangible, intangible and underwater taken into account in national frame-
ible and innovative programming and heritage are accompanied by guide- works, such as in Brazil through the
policies are often limited. lines related to sustainable develop- National Culture Plan 2011-2020
ment. The 2003 Convention for the and the Plural Brazil programme,
Moreover, the multiplicity of actors Safeguarding of the Intangible which seeks to integrate marginalized
and interests involved in cultural Cultural Heritage, for instance, has a groups into cultural policies.
policy-making represents a challenge. new chapter in its Operational
While certain regions have a history directives on ‘Safeguarding intangible Other key UNeSCO reports and in-
of central government control over cultural heritage and sustainable dicators, such as the United Nations
cultural policies, decentralization has development at the national level’ Creative Economy Report Special Edition
been a widespread phenomenon in (UNeSCO, 2016). (UNdP/UNeSCO, 2013); Culture for
recent years. While decentralization Development Indicators Methodology
has often empowered local govern- Re|shaping Cultural Policies, the first Manual (UNeSCO, 2014a); and
ments, it has also made governance Global Monitoring report for the Gender Equality: Heritage and Creativity
more complex, with blurred divisions 2005 Convention on the Protection (UNeSCO, 2014b) have also addressed
and weaker communication between and Promotion of the diversity of the transversal challenges of inte-
different levels of government. Cultural expressions, launched in grating culture into sustainable urban
2015, contains a wealth of best prac- policies – issues such as promoting
adding to this complexity, new finan- tices and policy advice, while high- women’s empowerment, the impor-
cial tools, such as public-private part- lighting the impact of the Convention tance of national cultural policies to
nerships, have allowed for the greater on the national policies of numerous foster local sustainability, and the
involvement of the private sector in State Parties (UNeSCO, 2015). economic value of cultural activities,
cultural policy-making. Heritage pro- goods and services.
tection has proven to be an important The impact of UNeSCO’s Culture
focal point for civil society campaigns, Conventions on the national policies UNeSCO conferences have also
increasing the involvement of the of countries around the world is in- worked to disseminate best practices
general public. Thus, today a broad deed noteworthy, whether or not a and promote a new, culture-led vision
range of actors and dimensions are country is a signatory to a particular for sustainable urban development.
now involved in cultural policy-making. convention. In africa, the implemen- Most recently, the International
Integrating the diverse stakeholders tation of the 1972 Convention Conference on ‘Culture for Sustainable
while fostering sustainable develop- Concerning the Protection of the Cities’, held in Hangzhou, China, in
ment requires a multi-stakeholder World Cultural and Natural Heritage december 2015, resulted in the
approach, which demands greater helped to update existing legal and Hangzhou Outcomes 1 – a cultural
participation at all levels and stages institutional systems, while the pro-
of the policy-making process. motion of the 2011 recommendation 1
See: http://www.unesco.org/new/fileadmin/
on the Historic Urban Landscape, MULTIMedIa/HQ/CLT/pdf/SustCit_Hangzhou_
Outcomes_eN.pdf
202
SECTION C
Detroit (USA)
© Mike Boening Photography
policy platform aimed at addressing

the most pressing needs of urban de-
velopment in the coming decades.
Indeed, the four articles presented

in this section draw their inspiration
from the Hangzhou Outcomes. In
the first, Nancy duxbury, Jyoti
Hosagrahar, Jordi Pascual and Jordi
Baltà present an agenda for local
governments to integrate culture into
their urban development policies,
stressing that culture is a basis for
social well-being. Giulio Verdini, in
his piece on enhancing rural-urban
linkages, proposes culture as a tool
for harmonious territorial develop-
ment, focusing on the unique cultural
contributions of small settlements
and urban peripheries. On the issue
of improved urban governance, ana
Pereira roders focuses on ‘smart’
governance, calling for structural
change so that cities can strengthen
heritage conservation and improve
resource management. Finally,
Christian Ost analyses innovative fi-
nancial approaches for the inclusion
of culture in sustainable urban de-
velopment, arguing that cultural pro-
jects contain numerous economic
benefits, from job creation to stable
incomes, to enhanced quality of life.
accompanying these articles is a
series of case studies from cities
around the world and perspectives
from leading mayors, international
financial institutions and non-
governmental organizations, all of
which highlight the variety of ways
that policies can integrate culture
with sustainable development.
203
CHaPTer
9 SUSTAINABLE
LOCAL DEVELOPMENT
Havana (Cuba)
© Julian Peters Photography/Shutterstock.com*
Urban areas must be ‘rehumanized’, both

IN FOCUS
in terms of scale and in enhancing a sense that

facilitate belonging. Systematic, comprehensive
and culturally sensitive urban development models I N T H I S C H A P T E R
are required to promote inclusive processes of
Article:
access, representation and participation in culture. Nancy Duxbury, Jordi Baltà, Jyoti Hosagrahar and Jordi Pascual.
Culture in urban development policies: an agenda for local
The role of culture for sustainable governments
urban development goes beyond its value
Perspectives:
as a commodity or a resource to attract Jenny F. Mbaye. Centre for Culture and the Creative Industries,
investments and boost branding. Decision-makers City University of London (UK). Culture as a resource for
should build on culture for inclusive development, sustaining urban life and livelihoods
overcoming inadequacies of indicators and Sofia Avgerinou Kolonias. National Technical University of
Athens (N.T.U.A.) (Greece), President CIVVIH ICOMOS and
measurement of impacts, citizen participation and ICOMOS Board Member. A multidimensional view of heritage as
gender inequality. a factor of sustainable urban development
Randall Mason, University of Pennsylvania (USA). Creative
Cultural vitality is necessary to city life as it placemaking as urban policy
permeates all spheres of living and lies at the Case studies:
foundation of freedoms, the public exchange of Pekalongan (Indonesia). Craft as an honourable occupation
ideas and societal well-being. Guatemala City (Guatemala). Broadening creative horizons for
youth through audiovisual training
Saint-Louis (Senegal). Generating economic benefit through
The role of local governments is crucial conservation efforts
to create and support spaces for dialogue and action; Seville (Spain). Strengthening intercultural dialogue and
plan, design, implement and monitor policies and community participation in urban regeneration
programmes; develop infrastructure; and ensure that Kolomna (Russian Federation). Revitalizing the knowledge and
skills of traditional practices for local development
the values of heritage, diversity and creativity are
recognized, particularly in contexts where these may
204 be neglected or threatened.
9
CULTURE IN URBAN DEVELOPMENT POLICIES:
C H A P T E R
AN AGENDA FOR LOCAL GOVERNMENTS
NANCY DUXBURY, JORDI BALTÀ, JYOTI HOSAGRAHAR AND JORDI PASCUAL1
CULTURE HAS HISTORICALLY BEEN A CONSTITUTIVE FORCE OF URBAN dEVELOPMENT. TOdAY, AN

IMPRESSIVE VARIETY OF INNOVATIVE PRACTICES TO INTEGRATE CULTURAL ASSETS INTO URBAN
dEVELOPMENT STRATEGIES ARE OBSERVEd THROUGHOUT THE WORLd.
SUSTAINABLE LOCAL DEVELOPMENT

F our decades on from Habitat I, while the economic,
environmental, political and social dimensions of
development have been acknowledged and – to a greater
CASE STUDY 92
Pekalongan (Indonesia)
MALAYSIA
BRUNEI
DARUSSALAM
MALAYSIA
Craft as an honourable INDONESIA

or lesser extent – understood by the international
occupation
community, today the cultural dimension of development
is still too often misunderstood or undervalued, or seen Pekalongan, a port city in central
as an optional extra to be added when the hard work of Java (Indonesia), has long
‘real’ development is done. While Habitat II in 1996 been known as a centre for batik, an elaborately decorated
recognized culture as an integral part of people’s well- cloth (usually cotton) produced with a wax-resist dyeing
being, and local development and equity were linked with technique. This textile has traditionally been crafted by hand
acknowledging diversity in cultural heritage and values, in family workshops and small-scale cottage industries. For
culture was not fully integrated in its delivery. In parallel, those growing up in Pekalongan at the beginning of the
especially since 2000 – from local to international scales twenty-first century, however, apprenticeship in a batik
– culture has been gradually recognized as a key issue in workshop was not an attractive option: young people with
local/urban sustainable development (Pascual, 2009;
aspirations for advancement set their sights on other pro-
fessions such as computers or sciences.
duxbury et al., 2012; duxbury and Jeannotte, 2012;
UNESCO, 2012; Hosagrahar, 2013; Hristova et al., 2015; City leaders decided that Pekalongan’s future viability lay
UNESCO, 2015; dessein et al., 2015; Hosagrahar et al., not in a search for new industries, but in reinvigorating the
2016). The Global Taskforce of Local and Regional craft for which it was already well-known: batik. An historic
Governments (2014), for example, acknowledges the building was dedicated as a museum of batik. A mayoral
need to explicitly include culture in the paradigm of decree provided for batik to be integrated as local content
sustainable cities: into the public school curricula, in conformity with the existing
national educational framework.
Culture will be key in the success of sustainable
development policies, as driver and enabler of Beginning with only one school in the 2005-2006 academic
development and people-centred societies. A holistic and
year, it only took three years for the programme to reach all
of Pekalongan’s 230 schools, from kindergartens to sec-
integrated approach to development needs to take ondary schools. Young people have gained a new appreci-
creativity, heritage, knowledge and diversity into ation of the skills and knowledge required for the craft and
account. Poverty is not just a question of material a renewed respect for its practitioners, together with an in-
conditions and income, but also of lack of capabilities creased interest in the possibility of making a career in batik,
and opportunities, including in cultural terms. which is now once again viewed as an honourable occupa-
tion. Specialized training is provided at vocational schools,
It is time to improve (and update) the wording of culture whose students may gain the skills to enter batik-making as
in sustainable urban development, as well as to opera- a career. The Polytechnic of Pekalongan has established a
tionalize this narrative. three-year diploma course in batik, thus producing special-
ists with higher degrees.
The contemporary urban crisis calls for a new model of
The Long Term City Development Plan 2005-2025 is guided
urban development in the form of the ‘New Urban Agenda’ by the vision: ‘Pekalongan, city of batik: advanced, indepen-
to be approved at Habitat III. In addition to decreasing dent and prosperous’. The vision sees the art, craft, culture
vulnerability and environmental footprint, this new model and economy of batik as Pekalongan’s greatest potential,
must ‘rehumanize’ urban environments, both in terms of ‘the main locomotive and main driving force turning the
scale and in enhancing a sense of belonging. Furthermore, wheel of development of Pekalongan City’. Today, young
it must increase social cohesion, counter segregation Pekalongan residents are increasingly confident that they
(social and spatial) and uneven distribution of wealth, and can aspire to reputable work and a reasonable income without
aim for equitable distribution and access to urban having to join the migration to Indonesia’s larger cities.
resources and greater integration and connection among Prepared by Frank Proschan
residents. Within this context, it must recognize that
cultures are dynamic, intrinsically diverse and With these goals in mind, more systematic and compre-
multifaceted, incorporating a range of expressions and hensive ‘culturally sensitive urban development models’
values embodied in tangible and intangible heritage, are required (United Nations Task Team on Habitat III,
contemporary arts, collective and individual activities, and 2015). To this end, the role of cultural practices and values
particular features that characterize distinct ‘ways of life’. in sustainable development must be explicitly recognized,
supported and integrated into planning and policy in a
1
Based on the work done by the Committee on Culture of the United Cities systematic and comprehensive way.
and Local Governments (UCLG), including the policy paper ‘Why must culture
205
be at the heart of sustainable urban development’ (duxbury et al., 2016).
POLICIES Integrating culture into urban policies to foster sustainable urban development
P E R S P E C T I V E 36 MYTH 1. Everything about cultural traditions and

CULTURE AS A RESOURCE FOR SUSTAINING URBAN LIFE practices is good and must be conserved and safeguarded.
AND LIVELIHOODS Local or national sustainable development must respect
Jenny F. Mbaye Centre for Culture and the Creative Industries, City University of London cultural beliefs, practices and traditions and cannot change
(United Kingdom of Great Britain and Northern Ireland)
any aspect of them. It is legitimate to use culture to justify
behaviours and practices that infringe upon human rights.
Cities are a demonstration of the life- Culture is a means of the political, social,
force that culture plays in the historic economic and spatial expressions of Local circumstances and traditions of groups are more
transformation of our societies, and as cities; it informs urban morphologies important than individuals.
such a key engine in their urban devel- and patterns of cities, as well as the
opment and social sustainability. We needs, practices and usages of those COUNTER-NARRATIVE. The 1948 Universal declaration
should nurture culture, and move beyond who reside, transit and inhabit the urban of Human Rights is, indeed, universal. Culture is an integral
instrumentalizing it as a disposable tool, fabric. One cannot have a city - let alone part of human rights (Art. 27) and human rights are
indivisible and interdependent. Therefore, no one may
to embrace two distinctive aspects that human life that thrives - without culture.
essentially make up its DNA: meaning Here is the challenge and opportunity
and values, and transmission. Together, of culture: change and transformation invoke culture to infringe upon the human rights of
they are a powerful resource that sustains have to respect cultural values and to individuals, guaranteed by international law, nor to limit
urban life and livelihoods. use the means of cultural transmission. their scope.2 Cultural practices that infringe upon the
Culture is the key to the city, and its human rights of individuals must be modified to conform
Meaning and values are the essence of governance. to the Universal declaration of Human Rights. Cultural
creative products and other cultural ex- relativism of human rights is not acceptable.
pressions. They give life expression and Culture is simultaneously content (value
significance. Meaning and values are and meaning) and a container (a form
expressed and measured in a variety of of transmission). This dual and interlinked CASE STUDY 93 MEXICO
ways, but reducible to no single one. role is the means of valuing choices and BELIZE
The forms are diverse: intellectual property promoting innovation that underpins the Guatemala City (Guatemala)
resources, tangible and intangible com- notion of urban citizenship. Culture both Broadening creative horizons HONDUR
modities, products of traditions and is and holds social permutations and for youth through audiovisual GUATEMALA
EL SALVADOR
savoir-faire, crafts and innovations. The human development, as well as the training N
sustainability of culture is thus only to transformations of the built environment,

be achieved by maintaining a fine balance with cities being one of its most accom- Based in Guatemala City (Guatemala), a city of over 1 million
between monetary and social values of plished forms. people and the site of mass rural to urban migration in recent
branded and lived spaces and products, decades, the Instituto de Relaciones Internacionales e Inves-
the local and the global, and the indige- Culture then is the tree and the fruit of
tigaciones para la Paz (IRIPAZ) has worked to promote
nous and worldwide. In a holistic way, sustainable urban development. We thus
Guatemala’s cultural diversity through audiovisual media.
culture nurtures and nourishes, sustains need to move beyond labels and branded
and makes resilient, cities, regions and concepts – ‘smart cities’, ‘creative cities’, With the support of UNESCO’s International Fund for Cultural
their populations. ‘eco cities’ and more recently ‘self-confi- Diversity (IFCD), IRIPAZ launched the ‘Intercultural social
dent’ cities – as cities of culture remind communication through audiovisual creation’ project, a two-
As a transmitter, culture holds and trans- us of the essential role played by genuinely phase initiative with a distinct focus on digital technologies.
ports identity, meaning and memory, people-centred urban policies, broad-
within and beyond territorial boundaries. based and transversal in their approach. During the first phase of the project, students, many from
indigenous communities, learned how to operate digital
cameras, studied graphic design programmes such as Pho-
toshop and Illustrator, explored video editing through Final
CONCEPTUAL MYTHS AND OPERATIONAL
Cut Pro and After Effects, and mastered digital music pro-
CHALLENGES
duction with Logic Pro. Now in its second phase, the ICREA
Lab project (as it is now known) is educating students in cul-
tural entrepreneurship skills – such as crowdfunding strate-
Conceptual and operational issues persist on culture’s role gies – geared towards the audiovisual industry. As a result
within the context of sustainable urban development policy of the project, more than 100 young people have received
and planning. The relationship between culture and training in cultural entrepreneurship, with many going on
sustainable development is not thoroughly understood, to found their own audiovisual production companies. Fur-
and the integration of culture within broader holistic urban thermore, thanks to a partnership with the University of San
planning and development continues to be an issue. In Carlos in Guatemala City, a professional certification pro-
order to integrate culture into urban development in more gramme has now been established for young cultural man-
systematic and comprehensive ways, these challenges
agers. By creating new opportunities for young, indigenous
cultural entrepreneurs, the ICREA Lab project is greatly con-
must be explicitly addressed. tributing to economic development and social cohesion in
Guatemala City and beyond.
There are some main misconceptions around culture with
underlying assumptions about the place of culture in the
Prepared by UNESCO
sustainable development of cities. The following

articulates the myths and aims to counter them, providing
constructive and positive counter-narratives.
2
See: 2001 UNESCO Universal declaration on Cultural diversity (Art.4),
also: Gender Equality: Heritage and Creativity (UNESCO, 2014b)
206
C H A P T E R
Navala village (Fiji)
© Don Mammoser/Shutterstock.com*
MYTH 2. Culture is an obstacle to development. If you CASE STUDY 94

emphasize heritage, traditions or the inclusion of
M
Saint-Louis (Senegal)
disadvantaged people, economic development cannot be Generating economic benefit
as fast as it should be. Economic development is the through conservation efforts SENEGAL
priority, and all frameworks, resources and efforts should

be devoted to that. Culture is secondary to more important With a history spanning over three
purposes.
GAMBIA
centuries, Saint-Louis’s typical houses,
system of quays, street layout, river-
COUNTER-NARRATIVE. Culture can either facilitate or bank, and Faidherbe Bridge contribute to the city’s unique
obstruct development agendas. The role of culture for identity. The city was once the capital of Senegal and Mau-
sustainable development depends on ensuring cultural ritania and played a predominant cultural and economic role
rights for all: ensuring every woman, man and child can
throughout West Africa. Since 2000, the Island of Saint-Louis
access, take part in, and contribute to cultural life.3
(Senegal) has been designated as a UNESCO World Heritage
property.
development only understood in economic terms is
neither effective nor sustainable. Culture is the sphere The local population has an enduring ambiguous relationship
where ideas, behaviours and practices can be discussed with the city’s colonial-built heritage, due to the absence of
and expressed in a pluralistic and democratic society, endogenous cultural materials in the building construction
constituting crucial foundations for the humane, inclusive, and its links to memories of a period of enslavement. The
holistic and long-term development of cities. growing importance of the economic role of heritage in
Saint-Louis through tourism, however, has nurtured greater
MYTH 3. The culture of a place is fixed and timeless. affirmation of the heritage amongst the local population
There are essential features in the identity of the city and who increasingly attach importance to its value as an economic
in the behaviour of people at local level that cannot be resource. Tourism has provided the prospect of establishing
questioned. Local identities are inherited and changeless.
a proactive public policy that combines conservation, heritage
enhancement, involvement of the local communities and in-
come generation. The heritage challenge concerning the
COUNTER-NARRATIVE. History clearly shows that conservation and development of the heritage of Saint-Louis
identities of local communities change over time. Cultural is intertwined with that of inclusive economic development
policies, based on human rights, can be understood as an and hinges on the optimal use of resources and develop-
opportunity to jointly analyse the past, acknowledge the ment potential of the city's heritage sites. Capacity-building
components that have shaped it, and involve all citizens has been an important part in the heritage conservation
living in a place to build new meanings together. The policy led by the State and municipality with the support of
human rights framework allows alternative ideas to technical and financial partners to create a larger group of
emerge, flourish and be discussed. Culture belongs to all technicians capable of addressing conservation needs at the
people that live in a place. Identities are always being built. property. As part of the rehabilitation of the territorial as-
Identity has ceased to be a predetermining factor in a
sembly by the Walloon Region (2002-2008) a ‘field school’
helped to reclassify over 30 workers and technicians in her-
community, but its construction has become a key factor itage skills (lime, masonry, painting, roofing, carpentry, iron-
in communal projects. It is important that this process is work, treatment of termites, design and monitoring of
pluralistic and democratic. restoration projects). A second initiative, implemented by
the Spanish Cooperation, trained almost 100 young people
MYTH 4. Culture is a luxury not everyone can afford. At in heritage skills over a two-year period. As a result of the
the local level, there are other priorities: fresh water, youth rehabilitation programme, some young people have
decent jobs, adequate housing, education, etc. Culture started businesses and others have found jobs in local
can only be considered once other more important social businesses.
needs are addressed. Source: Arterial Network, report for Study Area 1
3
See: Shaheed, 2014
207
COUNTER-NARRATIVE. Unless culture is taken into investments and boost branding are recognizing a limited
account explicitly as a key enabler, sustainable develop- range of cultural manifestations. Cultural vitality is an
ment will not take place. development interventions can absolute necessity to city life because it permeates all
succeed or fail depending on how compatible they spheres of living and lies at the foundation of freedoms,
are with local culture (UNESCO, 2012). According to the public exchange of ideas and societal well-being. These
Meyer-Bisch (2013), culture is the right to experience dimensions infuse meaningful sustainable development,
knowledge, beauty and reciprocity, which cannot be which is experienced at local level and requires local
regarded as something additional once every individual’s spaces for public debate and decision-making.
fundamental needs have been fulfilled. It is a core element
of human dignity, that which makes us human. Culture
includes the circulation of knowledge, and therefore of
meaning. It is located at the very base of the ecosystemic
The idea of sustainability, malleable to accommodate
links between ecology, economics, politics and the social evolving perspectives has created a space in which different
fabric. stakeholders in the planning process are able to come
together and develop a practical future vision (different from
MYTH 5. Culture is something that should be left to the the status quo) that creatively combines vibrant, livable
market. Cultural goods and services are just commodities. communities with a lighter footprint on the planet and a
Cities should only invest in cultural infrastructure and deeper connection to place and people.
events if there is an economic return (e.g., tourism, city Timothy Beatley, University of Virginia (USA)
branding).
COUNTER-NARRATIVE. Culture must be recognized as

a core element in local urban policies. Cities that see
culture solely as a commodity or a resource to attract
CHALLENGES TO OPERATIONALIZING
CULTURE IN LOCAL DEVELOPMENT
A MULTIDIMENSIONAL VIEW OF HERITAGE AS A FACTOR OF Operational challenges derive from underlying conceptual
SUSTAINABLE URBAN DEVELOPMENT uncertainties, as outlined above, from resistance faced in
Sofia Avgerinou Kolonias National Technical University of Athens (N.T.U.A.) (Greece), Presi-
dent ICOMOS International Committee on Historic Towns and Villages (CIVVIH) and ICOMOS implementing local cultural policies and plans, as well as
Board Member from limited expertise in designing and implementing
Through years of observing and studying culture must become its fourth pillar. Α suitable programmes. They are embedded in perspectives
cities and historical urban landscapes, main condition for any intervention is to and approaches of professional practices, as well as in
we realize that the intangible, social and maintain the tangible and intangible organizational cultures, bureaucratic processes and
productive relationships formed through values of historic cities and of their settings, historic norms. Operationalization issues can be
characterized into four general categories:
the passage of time are key to the cities’ not only on an urban but also a regional
secrets and evolution. Economic and level. The integration of historic cities
social relationships and the city’s functions and urban areas in the social, cultural
constitute the mechanisms of their historic and economic life of our era, social justice 1. Limitations due to legislative frameworks, targeted
evolution and contemporary reality. and the residents’ quality of living must policies, bureaucratic silos and administrative reluctance:
also be guaranteed.
The urban space is a multidimensional, • Legislative frameworks, cultural policies and
financial and social creation and, within Now, more than ever, cities and urban programmes have traditionally been tailored to the
needs of particular sectors (e.g. performing arts, visual
the milieu of today’s complex and rapid- areas encompass important factors which
ly-changing realities, we need a multi- can contribute to the progress of humanity
thematic and multidisciplinary approach and guaranteeing the cities’ resilience. arts, music, heritage, literature, etc.). How can sector-
in order to understand and interpret it. Multifaceted crises of recent years have specific approaches be reconciled with broad-based,
Corresponding claims exist in dealing brought about new urban challenges, intersectoral, people-centred cultural policies?
with current problems in the cities and such as social problems, combined with
their planning, mainly concerning the cases of exclusion and misery for large • Policies and programmes for ‘urban sustainability’
are primarily about environmental issues and creating
role of culture and urban heritage man- groups of people, and cases of delin-
a ‘greener’ city. How can urbanization and physical
agement within the framework of sus- quency and violence. Within this context,
tainable development. the contradictions and the devaluation
of cities and urban areas bring back the planning better integrate culture into urban
The goals, methods and tools to protect discussion on the need to reorganize sustainability policy frameworks and programmes?
urban heritage must correspond to the the urban productive base. This should
more recent approaches of preservation be grounded on the quality of public • There is institutional reluctance on the part of
and of sustainable development. Hu- space, the cultural and social identity of ‘twentieth-century’ sustainable development actors,
guardians of the ‘three-pillar system’, to explicitly
mankind is now realizing that, apart from local societies, their culture and heritage,
the three pillars of sustainable develop-
incorporate cultural dimensions.
the need for large-scale cultural works,
ment (economy, society and environment), and the return of creativity.
208
C H A P T E R
2. Complexity of the cultural sector and the cultural approaches focus on stages of improvement (qualita-
features of communities: tive criteria) rather than on quantitative criteria?

• Misunderstandings of the word ‘culture’ and its • How can culture’s contribution to strengthening and
different meanings or ambiguities: e.g. culture as way enriching local sustainability, resilience and holistic
of life and culture as art. development be better evidenced?
• The ‘complexity’ of the artistic world, with its great 4. Underlying issues of citizen participation, gender
diversity of approaches and practices (often including equality and enhancing inclusion:
jargon-filled language), from the individual to the
collective, can produce a silo effect that is hostile to • How can the democratic participation of citizens in
people-centred cultural policies. the formulation, exercise and evaluation of public
policies on culture be encouraged and stimulated?
• Cultural diversity can be a source of social tension
when taken up by actors not fully committed to • Are cultural policies and programmes sensitive to
inclusive democracy. and promote gender equality? How can cultural
policies be used to advance the empowerment of
3. Inadequacy of indicators, measurement and evalua- women?
tion of progress and impacts:
While challenges are still faced in each of these areas,
• Culture cannot be measured and monitored like practitioners are addressing intertwined issues and
other areas of sustainability since it has important non- concerns to advance professional practices, develop more
quantifiable and invisible dimensions (UNESCO, effective tools and techniques, and improve performance
2014). Yet some measurement or assessment criteria and outcomes of culture-sensitive urban planning and
are essential because cultural policies, like other public development.
policies, are subject to a democratic imperative of
transparency and effectiveness. How can monitoring
Large cities in the highly developed world are the
C A S E ST U DY 95 places where globalization processes assume concrete,
FRANCE
Seville (Spain) localized forms. These localized forms are, in good part,
Strengthening intercultural what globalization is about. We can then think of cities
PORTUGAL
SPAIN
dialogue and community also as one key place where the contradictions of the
participation in urban internationalization of capital either come to rest or to
regeneration conflict. If we consider, further, that large cities
MOROCCO ALGERIA
concentrate a growing share of disadvantaged
Community participation lies at the centre of culture-based populations – immigrants in both Europe and the United
regeneration strategies in the Andalusian capital of Seville States, African Americans and Latinos in the United
(Spain). In 2010, the City of Seville implemented a 10-year
Strategic Plan with the aim of transforming the city into a
States – then we can see that cities have become a
creative node with a closely knit social fabric. The key objec- strategic terrain for a whole series of conflicts and
tives of the Plan are to promote Seville as a cultural hub, a contradictions.
crossroads between East and West, and a knowledge and Saskia Sassen, sociologist
economy-based city. As part of the Plan, the ‘Habitar Project
2.0: Three cultures, a single neighbourhood’, works at regional
level to promote local participation in the regeneration and
revitalization of vulnerable neighbourhoods throughout An-
dalusia. The project involves the Andalusian neighbour- OPPORTUNITIES FOR OPERATIONALIZING
hoods of Polígono Sur (Seville), Almanjáyar (Granada), San CULTURE IN LOCAL DEVELOPMENT
Martín de Porres (Cordoba), Saladillo and Piñera (Algeciras,
Cadiz) and Chanca and Puche (Almeria), as well as the part- There is a duality to the policy approaches that need to be
ner cities Tangier and Tetouan (Morocco), and is coordinated developed for culture. On the one hand, the importance of
working in harmony with local culture and values is widely
by the Department of Development of the regional govern-
acknowledged, leading to an array of local ‘transversal’
ment of Andalusia with the support of the European Union.
By placing inclusion and cultural diversity at the core of its
mission, the project seeks to enhance the sustainability and experimentation to include culture in integrated
resilience of the neighbourhoods by nurturing dialogue approaches for social inclusion or economic growth. The
among communities and encouraging their participation in key transformations for local sustainable development in
conservation and management processes. the next decades will be located in the interrelation and
Source: IUAV, report for Study Area 3 integration of civic domains, interlinking concerns such as
heritage, housing, physical planning, inclusion, mobility,
209
culture, nature, resilience and governance, ensuring full acknowledging cultural diversity require suitable policies,
and active community participation. In these approaches, based on the relevant expertise. The distinctive features
the incorporation of cultural considerations will be key to of cultural expressions, activities and a diversity of
ensuring that the paradigm of sustainability is meaningful perspectives must be appreciated and nurtured. The
to people, incorporating local histories and knowledge, plurality of cultures and cultural heritage must be
resonating with local identities and truly building from the conserved and safeguarded through more informed,
aspirations of local communities. intelligent and sensitive cultural policies. This requires
specific investment in capacity-building, infrastructure,
On the other hand, culture must also be addressed as a policy design, implementation and evaluation, and
domain in its own right. Protecting cultural heritage knowledge-sharing. All urban actors must be better
(tangible and intangible), promoting creativity and equipped to become effective advocates of culture as a
dimension of urban development. And cultural policies
must be underpinned and supported by appropriate
P E R S P E C T I V E 38 governance frameworks, based on active participation. It
CREATIVE PLACEMAKING AS URBAN POLICY is vital for local governments to provide environments
Randall Mason University of Pennsylvania (United States of America)
that actively encourage public, democratic debate and
Sustainable urban development must be and cultural richness to urbanism. The decision-making, where citizens can exercise their rights,
imbued with a strong social conscience simple, profound goal of CP is increased expand their abilities, lead the present and decide on the
and cultural richness; it must address activity. future.
cultural heritage and diversity directly,
not just implicitly. After all, cities are Creative placemaking projects include
CASE STUDY 96
empty vessels if not filled with exchange, renovation and reactivation of old in-
creative expression, cultural difference frastructure or leftover spaces; creation Kolomna (Russian Federation) RUSSIAN
and truly public space. How, then, can of new, formal public spaces (often on Revitalizing the knowledge ESTONIA
LATVIA
FEDERATION
urban policy help provide for such cultural waterfronts) that are programmed in- and skills of traditional LITHUANIA
richness as part of both heritage conser- tensively; and ‘pop-up’ artworks, pro- practices for local BELARUS
vation and contemporary development? grammes, events and pilots to test con-
Decades hence, how will we look back cepts. These projects invest heavily in
development UKRAINE
at the urban heritage of the early twenty- public space and give art and culture
first century? What aspects or qualities significantly more visibility. In Kolomna (Russian Federation), the recognition and revi-
of cities are symptomatic of this era? talization of pastila-making, a traditional fruit confectionery,
Creative placemaking draws critiques that has become a central component to strengthening cultural
Massive urbanization, generic tendencies it relies on privatization and contributes identity and boosting the local economy. Kolomna pastila
of global urban development and the to gentrification. Does it breed overde- production lay dormant for over a century until a recent
overwhelming presence of tourism present pendence on the philanthropic sector? study revealed that the manufacturing of the confectionary
deep threats to cultural sustainability. Do the ephemeral projects produce lasting was a well-established and integral part of the city’s cultural
Positive stories include the resurgence impact on communities? life in the eighteenth century.
of public space as a catalyst for regener-
ation and sites of protest; adaptive reuse There is great alignment, if not perfect The study catalysed efforts by the local community to rein-
of redundant infrastructure; vibrant art overlap, between CP and sustainable ur- vigorate traditional pastila manufacturing techniques
and cultural districts; valuing food culture; ban development policies. CP takes ad- through developing the skills of local artisans and the
preservation of landmark buildings and vantage of the most salient shifts in cultural institutions of the city. The non-profit partnership
landscapes – these trends advance sus- recent urban policy: proliferation of pub- ‘Museum City’ established a museum in 2009 and a pastila
tainability and enable urban policy inno- lic-private partnership models; influence
factory museum in 2011, which raised awareness of the
vations. They all fall under the umbrella of citizen empowerment and participation;
practice amongst the community and wider public, and pro-
of ‘creative placemaking’. valuing marketable innovation as well
as measurable impact; and reliance on moted sustainable tourism through local culture and prod-
What is creative placemaking and how the arts/culture sector as a driver of de- ucts. The revitalization of the practice has boosted job
does it contribute to this urban resur- velopment. creation and has yielded benefits for the local economy, with
gence? Creative placemaking (CP) is a tourism to the city increasing three-fold from 2008 to 2015.
mode of urban intervention drawing on It inhabits and enlivens an important A renewed sense of community pride in the practice and its
many tools, traditions, scales and meth- band on the spectrum of urban policies place-based significance has been nurtured, triggering com-
ods. It is multivalent, multidisciplinary and interventions by amplifying the con- munity interest to research and revitalize other cultural in-
and adaptive, consisting of a variable tingency, flexibility and provisional nature dustries to generate new development opportunities for
menu of heritage conservation, ecological of urbanism through public art, cultural their city.
restoration, artistic production and cul- expression and participation. A broader Source: Strelka Institute for Media, Architecture and Design, report
tural programming, all shaped by broad spectrum of policies, enabling more for Study Area 4
participation and collaboration. It is a forms of creative placemaking, begets
fugitive concept in terms of policy and more vibrant and culturally-rich urbanism.
practice – referring to many phenomena, Surely this is one of the qualities we
yet none uniquely. It is deployed to re- value most in making urban development
verse decline and return human scale more sustainable.
210
C H A P T E R
Funchal, Madeira (Portugal)
© T.W. van Urk/Shutterstock.com*
CONCLUSION
The struggle for global sustainability is being played out in A new people-centred and planet-sensitive sustainable
cities, and local governments occupy a strategically development agenda requires cities to adopt new cultural
important space. In the area of culture, the role of local policies. They must be based on inclusive processes of
governments includes: creating and activating spaces for access, representation and participation of all citizens in
dialogue and action; setting priorities and planning, culture. They must be people-centred, not sector-centred.
designing, implementing and monitoring policies and We need to bring together all urban actors to work
programmes; developing infrastructure; and guaranteeing towards operationalizing a new model of sustainable
attention to the values of heritage, diversity and creativity urban development that explicitly integrates culture
in contexts where these may be neglected or threatened. within it. The arguments, expertise, examples and tools are
Culture 21 Actions (the toolkit on ‘culture in sustainable increasingly available; only stronger will and engagement
cities’ promoted by United Cities and Local Governments) are needed.
is an interesting framework for cities to elaborate a new
generation of cultural policies (UCLG, 2015).
211
CHaPTer
10 ENHANCED RURAL-URBAN
LINKAGES
Hebron (Palestine)
© Reza/Webistan*
IN THIS CHAPTER
Article:
Small settlements should be reconsidered Giulio Verdini, University of Westminster (UK). Culture as a tool
IN FOCUS
for harmonious territorial development

for their unique contribution to fostering local
creative and inclusive patterns of territorial Perspectives:
development. Yves Dauge, President, Association of French World Heritage
Sites, and President, Association of Cultural Encounter Centres
(France). Action for culture in the New Urban Agenda
The tangible and intangible cultural Wang Shu, architect and Pritzker Architecture Prize laureate
resources of small settlements should be 2012. Connecting urban development to nature
safeguarded to enhance economic and social
benefits in the relevant broader regional Case studies:
Suzhou (China). Reviving textile traditions for development in
context. rural villages
Rakhi Shahpur and Rakhi Khas (India). Reuse of traditional
The size, location and economy of small structures for sustainable rural development
settlements, while often seen as disadvantages, Cotogchoa (Ecuador). Combatting uncontrolled peri-urbanization
and strengthening local cultural resources
can offer opportunities to support local cultural Dili (Timor-Leste). Population growth: a key policy issue for small
development. urban settlements
Durban and Johannesburg (South Africa). Singing the migrant
Building positive partnerships between experience: isicathamiya music in South Africa
Coffee Cultural Landscape (Colombia). Cultivating territorial
rural and urban areas is essential for enhanced development through heritage
and harmonious territorial development.
Box:
Good practice cases in rural or peri-urban settings where
culture has contributed to sustainable and inclusive local
212
patterns of development
10
CULTURE AS A TOOL FOR HARMONIOUS TERRITORIAL
C H A P T E R
DEVELOPMENT
GIULIO VERDINI
University of Westminster (United Kingdom of Great Britain and Northern Ireland)
HARMONIOUS TERRITORIAL dEVELOPMENT ANd URBAN-RURAL LINKAGES HAVE ATTRACTEd INCREASEd

POLICY ATTENTION IN RECENT YEARS IN THE ATTEMPT TO OVERCOME THE PREdOMINANT dISCOURSE OF
THE URBAN-RURAL dIVIdE. TERRITORIAL dEVELOPMENT REFERS TO A ‘PROCESS THROUGH WHICH THE
ENHANCED RURAL-URBAN LINKAGES

GEOGRAPHIES OF TERRITORIES INHABITEd BY HUMAN SOCIETIES IS PROGRESSIVELY TRANSFORMEd. IT
INVOLVES PHYSICAL COMPONENTS (INFRASTRUCTURE, LANdSCAPES ANd TOWNSCAPES, ETC.) BUT ALSO
THE TERRITORIAL STRUCTURE OF SETTLEMENTS PATTERN, I.E. THE GEOGRAPHIC dISTRIBUTION OF POPU-
LATION ANd HUMAN ACTIVITIES’ (COUNCIL OF EUROPE, 2007). URBAN-RURAL LINKAGES REFER TO
‘COMPLEMENTARY ANd SYNERGETIC FUNCTIONS ANd FLOWS OF PEOPLE, NATURAL RESOURCES, CAPITAL,
GOOdS, EMPLOYMENT, ECOSYSTEM SERVICES, INFORMATION ANd TECHNOLOGY BETWEEN RURAL, PERI-
URBAN ANd URBAN AREAS’ (UN-HABITAT, 2015). ‘URBAN-RURAL PARTNERSHIP IS THE MECHANISM OF
COOPERATION THAT MANAGES LINKAGES TO REACH COMMON GOALS ANd ENHANCE URBAN-RURAL
LINKAGES’ (OECd, 2013). THEREFORE, TERRITORIAL OR URBAN-RURAL PARTNERSHIPS ARE INCREASINGLY
REGARdEd AS A dESIRABLE POLICY ACTION,
RESPECTFUL OF THE PARTICULAR IdENTITIES
The city is everywhere and in everything. If the urbanized
OF dIFFERENT TERRITORIAL COMPONENTS (UCLG, world now is a chain of metropolitan areas connected by
2016). places/corridors of communication…then what is not urban?
Is it the town, the village, the countryside? Maybe, but only
to a limited degree. The footprints of the city are all over
U
these places, in the form of city commuters, tourists,
N-Habitat has played a precursory role in addressing teleworking, the media, and the urbanization of lifestyles.
the complexity of urbanizing regions across the The traditional divide between the city and the countryside
world and in emphasizing the need to enhance rural- has been perforated.
urban linkages to achieve more sustainable urban
development outcomes. In 1996, it purported that ‘for
Ash Amin and Nigel Thrift, academics
most urban centres worldwide, an examination of their

resource use reveals a scale and complexity of linkages
with rural producers and ecosystems within their own
region or nation which implies that “sustainable urban
CASE STUDY 97 MONGOLIA
DEMOCRATIC
PEOPLE’S REPU
development” and “sustainable rural development”

OF KOREA
Suzhou (China) REPUBLIC
OF KOREA
cannot be separated’ (UN-Habitat, 1996). Later on, the

JAPAN
Reviving textile traditions
problem of metropolization in advanced countries and
CHINA
for development in rural UTAN
ADESH
uncontrolled peri-urbanization mainly in the developing villages MYANMAR VIET NAM
world was a central concern (UN-Habitat, 2009). While

LAO PEOPLE’S
DEMOCRATIC
the former assumption has paved the way for a resurgent

Wujiang is a district of Suzhou, located on the eastern side
interest in the agricultural richness of city-regions leading
of Lake Tai in Jiangsu Province (China). It is an area famous
for its silk production, fish farming and industrial activities.
to some innovative initiatives such as ‘Food for the Cities’ Today, despite the massive urbanization of the Yangtze River
launched by the Food and Agricultural Organization Delta, this region still retains a rural character mixed with a
(FAO), the latter has been instrumental in advocating for widespread industrial atmosphere.
city growth control and city compactness.
The city of Suzhou was recently acknowledged as one the
The topic of small settlements and their surrounding UNESCO Creative Cities (2014), silk embroidery being a pillar
regional context and landscape has been central to of the city’s creative industries. Apart from this dynamic sec-
various international documents, recommendations and tor, traditional local textile activities are still practised in sev-
agendas in recognition of their intrinsic cultural values. eral rural villages of Wujiang. In the village of Shuang Wan
The set of UNESCO policies in this respect has quickly
Cun, for example, ancillary textile production has been suc-
evolved through developing normative conservation
cessfully revitalized through online selling, creating new jobs
and attracting migrants to the village. In the process of mod-
tools. The acknowledgment of heritage properties of the ernization of the entire district, Wujiang is aiming to create
‘combined works of nature and man’ of ‘outstanding new urban developments and tourist facilities, particularly
universal value’ has been integral to the implementation along the lake. Nevertheless, the local government is also
of the Convention Concerning the Protection of the keen to develop policies to support rural tourism and
World Cultural and Natural Heritage since its adoption in strengthen the cultural roots of the local rural economy. For
1972. The introduction of the ‘cultural landscape’ as a this purpose, a Chinese Folk Museum and the Fei Xiaotong
World Heritage category in the early 1990s reinforced a Memorial Museum were established in 2010 in the nearby
shift towards more holistic conservation approaches in village of Kaixiangong
order to reconcile the natural and cultural values of Source: Giulio Verdini, Culture as a tool for harmonious territorial
heritage. Cultural landscapes have been interpreted as a development
213
web of relationships between local communities, their Shrovetide door-to-door processions and masks in
heritage and natural environment. For example, in the the villages of the Hlinsko area (Czech Republic), and
World Heritage-inscribed areas of Quebrada de the Grand song of the dong ethnic group, practised in
Humahuaca (Argentina) and Cinque Terre on the eastern the villages of Guizhou Province (China). More recently,
Ligurian coast (Italy), small rural settlements form the the 2011 Recommendation on the Historic Urban
backbone of the acknowledged cultural landscapes. Landscape acknowledged the negative effects of
Another milestone was the 2003 Convention for the uncontrolled urbanization both in inner city areas and
Safeguarding of the Intangible Cultural Heritage, as small the surrounding countryside, suggesting a ‘landscape
settlements are often the repository of ‘practices, approach for identifying, conserving and managing
representations, expressions, knowledge, and skills (…) historic areas within their broader urban contexts’
that communities, groups and, in some cases, individuals (UNESCO, 2011). Therefore, the broadening of the
recognize as part of their cultural heritage’ (UNESCO, geographic scope of the conservation practice has been
2003). This opened up opportunities for strengthening considered a condition for the successful implementation
their safeguarding through inscription, for instance, the of this new integrated soft tool for conservation.
P E R S P E C T I V E 39 Small settlements have been recognized as a fundamental

ACTION FOR CULTURE IN THE NEW URBAN AGENDA component of the sustainability of contemporary urban
Yves Dauge President, Association of French World Heritage Sites, and President, Association agglomerations and regions: for the legacy of their
of Cultural Encounter Centres (France)
agricultural origin, their environmental role, being an
If we want to take action, we must landscape the elements that need to be alternative to congested cities, and for their cultural value
involve all in strengthening public action, considered in the protection and devel- especially considering their endogenous resources and
both at state and local authority levels. opment of the Valley. their unique territorial and landscape features. In general,
This action must result in the improvement
of the institutional and legislative frame- Such initiatives must grow at city- and CHINA
works of each country, through the or- CASE STUDY 98 PAKISTAN
town-level, but also within regions to
NEPAL BHU
ganization and distribution of power be- give content and meaning to urban and Rakhi Shahpur and Rakhi Khas (India)
tween national and local levels, knowing territorial development strategies. An Reuse of traditional structures BANG
that it is at local level that urban projects important element should be emphasized INDIA
for sustainable rural
are constructed and their implementation here. It follows logically from the need
is ensured. We should particularly support to involve as many actors in development
development
and develop cooperation between cities, policies who, through shared discussions,
benefiting from the experience of those will also build shared visions and agree- The twin villages of Rakhi Shahpur and
that have been undertaken successfully ments and, therefore, alliances. Rakhi Khas, located 145 km from Delhi SRI LANKA
in controlled development processes in (India), host the largest and oldest Indus
which education and culture play their The theme of alliances is fundamental. archaeological site. The villages also feature historical
full role. It translates concretely into ensuring the structures from the eighteenth and nineteenth centuries with
coherence of an overall regional plan. a strong Mughal architectural influence. The proximity to
Such tools already exist. In France, urban This coherence is due to alliances between Delhi and the increased public interest in the archaeological
planning agencies, which have been es- local communities, the public and the site of Rakhigarhi have increased tourist numbers in recent
tablished for more than 50 years, are a private sector, and between public facil- years. For this reason, the village started an integrated
good illustration of this idea of partnership ities, notably the cultural facilities of project of rural development and heritage conservation,
platforms. These are associations where major cities with those of smaller outlying with the support of the Indian Trust for Rural Heritage and
the State is present with local commu- neighbourhoods and medium and small Development (ITRHD).
nities, and which are open to other cities.
urban development actors. They are ex- The project has been largely based on the community in-
amples to develop within the framework How can a vibrant cultural presence be
volvement of local villages. Many initiatives have been
of decentralized cooperation between developed in urban or rural sites that
planned: adaptive reuse of existing old structures for tourist
cities. do not have the means to showcase it
facilities (lodges, homestays, museums), safe drinking water
through the facilities and cultural services
In many countries, national and regional of large institutions such as theatres, facilities, community bio-toilets, health centres, a variety of
parks have formed multidisciplinary music, dance, visual arts, museums, etc.? training and vocational courses (IT skills, sewing and tailor-
teams over vast territories that have de- ing, tourism and hospitality), demonstration plots for organic
signed and managed inter-municipal Therefore, we should have a vision that farming, waste management and solar energy.
projects of sustainable development, involves all territories, all people, and
where cultural and heritage values are which offers the same service to all. The project is an example of an innovative and integrated
the source of highly participatory projects. Such a policy will curb the excessive model of rural development, as pursued by the ITRHD, which
In France, the Loire Valley is an excellent growth of large cities and the abandon- aims to connect the preservation of India’s rural heritage with
example: a multidisciplinary team of a ment of small and medium towns in economic development, livelihood enhancement and
dozen people defends the values recog- rural areas that it should instead support. general improvement in the quality of life. Its unique feature
nized by UNESCO on the cultural land- It is at the regional level that the regional lies in the fostering of talented and creative, yet marginal-
scape, covering nearly 300 km of the territorial development plans must ensure ized, rural residents and communities.
Valley. They transmit to the authorities the balanced development between
Source: Giulio Verdini, Culture as a tool for harmonious territorial
responsible for territorial planning and urban and rural areas. development
214
10
C H A P T E R
Wuzhen (China)
© Hervé Casterman
they have suffered from a lack of political representation In leading up to Habitat III, United Cities and Local
in the international arena, given their socio-economic and Governments (UCLG) worked to bring together
geographic marginality. representatives from intermediate governments and
small towns and municipalities representing rural areas
Recently, some initiatives tried to rebalance this gap. (UCLG, 2016). The aim has been to raise their voices in
Promising steps have been taken as enhancing urban-rural promoting an ‘integrated territorial approach’ to the
linkages and promoting local culture and products were development agenda, advocating for the ‘rural proofing’
acknowledged as strategic targets of the 2030 Sustainable of spatial planning (see also Chapter 9).
development Agenda. The support of ‘positive economic,
social and environmental links between urban, peri-urban despite efforts to define the characteristics of small set-
and rural areas by strengthening national and regional tlements and to affirm their strategic relevance in the
development planning’ is a target of Goal 11 to ‘make cities international policy discourse, some questions still
inclusive, safe, resilient and sustainable’. In addition, Goal remain. How can small settlements benefit from the cur-
12 advocates for ensuring ‘sustainable consumption and rent economic regime? How can culture, in its tangible
production patterns’ (United Nations, 2015). and intangible forms, leverage resources for inclusive and
environmentally-sound development in such environ-
C A S E ST U DY 99 ments? Which policies and measures can help in
alleviating their condition of marginality and social, eco-
nomic and environmental fragility? More broadly, is
Cotogchoa (Ecuador) COLOMBIA
Combatting uncontrolled
ECUADOR BR culture ultimately an effective tool to achieve harmonious
peri-urbanization and PERU
territorial development, enhancing urban-rural linkages?
strengthening local cultural
These fundamental questions will be tackled by looking at
resources
cases of small settlements worldwide that demonstrate
original and sustainable patterns of development, based
The parish of Cotogchoa is located about 19 km south of
Quito (Ecuador). It is a mountain area that still features con- on local cultural resources and creativity.
siderable natural resources due to its proximity to the eco-
logical reserve Pasochoa, and is central to the local economy
based on livestock and corn production. The local population MAIN CHALLENGES FOR CULTURE AND
is mainly comprised of indigenous peasant families who SUSTAINABILITY IN SMALL SETTLEMENTS
were given land ownership following the agrarian reforms
in the 1960s. The manifestation of rich local traditions is Many settlements remain a fragile component of urban
demonstrated through the many Andean festivals and and regional systems that are challenged by issues such
religious celebrations held regularly throughout the year. as ageing populations, migration, climate change, environ-
mental degradation and job decline. In an epoch where
agglomeration economies and wealth are increasingly de-
Despite the community’s strong cultural roots, there is a lack
of awareness of the risks of urban pressures exerted by the
nearby city of Quito. Uncontrolled urban sprawl risks threat- termined by the concentration of knowledge, culture and
ening endogenous environmental and agrarian resources, creativity in large cities, the role of peripheral regions in
which could instead become the backbone for a local sus- the new global scenario and their long-term sustainability
tainable economic strategy. remains unclear.
Since 2014, the Laboratory of Living Landscape (Paisajes • Small settlements are at risk of socio-economic and
vivos) of the Pontifical Catholic University of Ecuador (PUCE), physical decline and local communities are at risk of
is working to raise awareness at the local level through the being marginalized with potential negative impacts to
organization of participatory workshops on how to the survival of their local traditional activities and
cultural heritage;
strengthen the community’s cultural sense of belonging, en-
visioning alternative forms of local economy based on cultural
and environmental tourism.
• Local cultural resources are often underutilized or,
Source: Giulio Verdini, Culture as a tool for harmonious territorial
development
conversely, threatened by processes of overutilization
(mass tourism being a major threat). Utilization is
215
often based on standardized models with the risk of

lack of diversification;
CASE STUDY 100
INDONESIA
Dili (Timor-Leste)
Population growth: a key TIMOR-LESTE
• Creativity and innovation in small settlements is
policy issue for small urban AUSTRALIA
often limited by geographical isolation or marginality,
settlements scarcity of resources and lack of dynamic and young
workforce;
While there are no specific culture-based urban regeneration
• Small settlements are often suffering from the lack
strategies currently being implemented in Dili (Timor-Leste),
several laws hold the potential for future interventions. Gov-
ernment Resolution 24/2009, which approved the National of adequate and effective territorial governance
Culture Policy, calls for the preservation of Timor-Leste’s pre- mechanisms to cope with their relative isolation and
historic history and Portuguese architectural heritage; the marginality.
creation of a national library, school of music, fine arts
school, and national museum; the inclusion of culture and
arts in school curriculum; and the development of a digital CULTURE AS A TOOL FOR ENHANCING
inventory of archaeological, architectural, anthropological SMALL SETTLEMENTS
and ethnographic heritage, as well as music, dance and
other cultural expressions. Similarly, Timor-Leste’s current Throughout the history of urban (and rural) conservation,
marginal areas have been regarded as a minority stream,
2011─2030 Development Strategic Plan stipulates that Dili
although small towns and villages have been the
should reflect the presence of diverse cultural influences to
increase the city's attractiveness to tourism.
protagonists of some innovative experiences of policy
However, implementing these policies represents a signifi- design, participation and even cutting-edge design
cant challenge, particularly as the city struggles to provide proposals respectful of the past. The 1960s work of
basic services and infrastructure to its rapidly-growing pop- Hassan Fathy for poor rural communities in Egypt or the
ulation. Internal migration brings more than 7,000 people participatory design approach of Giancarlo de Carlo in
to Dili each year, placing considerable pressure on the small- Italy applied in small towns (Urbino, Colletta di
sized city to manage the steep influx of people, the increases Castelbianco and Mazzorbo in the Venice Lagoon) are
in rapid and inadequate construction and informal settle- considered milestones in the history of conservation
ments, and with limited resources. (Bandarin and van Oers, 2012). In recent years, rural
Source: Coimbra University, report for Study Area 6 areas have been the setting for innovative architectural
and urban design experimentation. The contributions of
two Pritzker Prize architects, Wang Shu in redesigning
contemporary rural Chinese villages, and Glenn Murcutt
P E R S P E C T I V E 40 in rehabilitating and designing rural houses in Australia,
CONNECTING URBAN DEVELOPMENT TO NATURE illustrate how to unlock the creative potential of such
Wang Shu1 architect and Pritzker Architecture Prize laureate 2012 environments.
In some cases, given the exceptional presence of cultural

Cities can make use of nature and make lot of people are indifferent to this kind
heritage or valuable cultural landscapes, the uniqueness
the best of nature, but they can also de- of destruction because what they see is
stroy it. We are looking at economies the wealth and the development that
that are developing at a very fast pace can come with it. Of course, everybody of these places can promote development. On the other
and can therefore be very destructive. aspires to a better life, but culture takes hand, this uniqueness can be a precondition for excessive
When we talk about sustainable devel- millennia to develop, and yet it can very localized growth, primarily due to mass tourism, like the
opment, environmentally friendly devel- easily be destroyed in an instant. well-known cases of Tongli water town in the Jiangsu
opment, we have to realize that in China Province (China), or Mont Saint Michel (France). The risk
of over-commercialization primarily for tourism depends
we have a very strong rural tradition What I would like to see is urban devel-
and that we can preserve that. We can opment that is close to nature, based
live in harmony with nature. This is a very on diversity, based on differences. This on fragile local ecosystems and is tightly linked to the lack
important dimension in Chinese culture, kind of diversity can be found in traditional of diversification of local economies and their
but it can also be a global dimension. areas, informal or spontaneous small employment pattern.
constructions, and the villages inside
Imagine a small village in a remote part the city. People who live in these areas Many bottom-up initiatives of local development in small
of China that has undergone this type are mostly the marginalized and the settlements have been supported by international
organizations such as UNdP, local governments and
of transformation, a very fast transfor- poor. We have to pay more attention to
mation. This is happening every day, the weaker segments of the population
everywhere in China. We see this kind because we have only just started to re- NGOs. The Slow Food movement has helped raise
of scene, this relentless destruction. A alize the important value of these areas. international awareness on the importance of the
relationship between local (in this case agricultural)
production, fair trade, environmental sustainability and
1
Extract of the plenary address by Wang Shu at the international conference ‘Culture for
Sustainable Cities’, Hangzhou (China), 10-12 december 2015.
social equity. Cases of beneficial rural-urban linkages have
been observed everywhere especially in the developing
world (Tacoli, 2006). Nevertheless, there is scope for
216
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C H A P T E R
Kangamiut (Greenland)
© Vadim Nefedoff/Shutterstock.com*
C A S E ST U DY 101 small settlements to build on and realize their cultural

M potential, and for their endogenous resources to be
better linked to creative processes.
Durban and Johannesburg (South Africa) BOTSWANA
Singing the migrant AMIBIA

SWAZILAND
experience: isicathamiya LESOTHO

music in South Africa SOUTH AFRICA
RECONCILING CULTURE AND PERIPHERAL
AREAS
Rural-to-urban migration has been
the crucible in which many musical traditions have been
forged. For migrants from the hinterlands of what is now In describing the features of cities and regions worldwide,
KwaZulu Natal to Durban, Johannesburg and other South it is increasingly accepted that distinctions between the
African cities, it is isicathamiya choral singing and dancing urban and the rural realm are regarded as arbitrary
that evolved, over the course of the twentieth century, as a (Brenner and Schmid, 2014). However, while the
powerful expression of their precarious situation as labourers technological revolution and the improvement of the
far from home. Known today to global listeners, particularly means of communication has significantly reduced the
through the recordings of Joseph Shabalala and Ladysmith urban-rural gap, there are still differences to be
Black Mambazo, the lilting harmonies of isicathamiya were considered, especially when creativity and cities are
first heard in community halls and urban hostels where black observed.
migrants could find respite from the often harsh realities that
Today, creativity is one of the main economic engines of
characterized their daily work experience.
Isicathamiya was woven together from various strains of cities, and its contribution to city economic competitive-
Zulu tradition, beginning in the late nineteenth century. The ness can depend on accessibility and distance from the
isicathamiya choirs typically perform in community halls core, with the risk of peripheral areas lagging behind
within the urban black neighbourhoods, and always at (Andersson, 1985). Therefore, it is not surprising that
night. Daytime is occupied by labour – primarily as factory such discourse has so far overlooked the impact of the
workers – while night-time offers the opportunity to create new creative economy regime on small settlements in
a space and time that are not dominated by the often severe peripheral or rural regions (Ratiu, 2013).
rigours of daily survival.
despite the projections of rapid urbanization (Figure 2),
some countries still retain an important component of
Isicathamiya has always been a music of seeming contra-
population classified as rural, such as India, China, Russian
dictions. It speaks powerfully of home for people living
away in the urban hostels. The choirs themselves are highly
coordinated – in voice, in dress and in dance – yet choirs Federation, and in countries in Africa, the Middle East,
compete against one another, each trying to best the others South-East Asia, the Mediterranean region, Eastern
with its skill and artistry during pre-dawn competitions that Europe, the Caribbean and some Andean countries
cap an all-night singing session. (United Nations, 2014).2 Smallness and remoteness are
not necessarily in contradiction with flourishing cultural
Its heterogeneity and internal diversity reflect the mixed na- and creative industries. Even ‘those (settlements) that are
ture of the migrant communities, bringing together people handicapped by relatively small size can often find
hailing from different localities, as well as the migrants’ ten- sustainable niches for themselves on world markets
uous position – before, during and after apartheid – as an provided they can offer sufficiently distinctive goods and
services’ (Scott, 2006). Thus, size, location and economic
indispensable source of labour that is largely controlled by
disadvantage can be turned into opportunities to support
others. Isicathamiya maintains its appeal in democratic South
Africa. The creativity that marked its first century is undimin-
ished in the first decades of the twenty-first century, with original local development. In the absence of strong
choirs now addressing some of society’s intractable problems market forces, ad hoc policies are often necessary to
such as unemployment, child abuse, gender violence, HIV unlock the endogenous potential of small settlements.
and AIDS.
Prepared by Frank Proschan 2
Author note: data regarding rural population must be taken cautiously
as small settlements (small localities) are not necessarily classified as
rural in national statistics.
217
Figure 2. PERCENTAGE OF THE POPULATION RESIDING IN

CASE STUDY 102 ANAMA VENEZUELA
URBAN AREAS, 2014 AND 2050

(BOLIVARIAN
Coffee Cultural Landscape (Colombia) G
Source: United Nations, 2014 Cultivating territorial COLOMBIA

2014 development through heritage
ECUADOR BRAZIL
At the foothills of the western and central ranges of the

Cordillera de los Andes, the Coffee Cultural Landscape of
Colombia (CCLCC), a World Heritage property, spans a
141,120 ha area comprising a network of 18 urban centres
and 6 landscapes.
Coffee growing has developed in the region over the past

150 years to become central to the cultural identity and
livelihood of the local communities. Typically grown at high
altitudes, the tradition has influenced land use and housing
typology and has been adapted to the region’s topography,
resulting in small, orthogonal plot layouts. Coffee production
is a source of pride and is integral to the daily lifestyles of
2050
the local communities. Linked to traditional land ownership,
the practice is passed down from one generation to the next.
Coffee production is currently the main economic driver in
the region.
In 2009, the Ministry of Culture of Colombia, the regional

authorities, and the Colombian Coffee Growers Federation
(FNC) signed a cooperation agreement to support the safe-
guarding and sustainable development of the CCLC through
economic, social and environmental programmes. The pub-
lic-private partnership with the FNC has enabled more than
85,000 families at the World Heritage property to benefit
from greater participation in decision-making processes, ac-
cess to research and knowledge, product quality control,
and economic and financial services. The management plan
of the property took into consideration the ongoing FNC
strategic plan and indicators, which includes multistakeholder
Small settlements can conversely rely on a variety of local participation in conservation activities and sustainability stan-
primary, proto-industrial or even industrial activities, often dards for any programme implemented by the FNC.
small-sized or family-run. The presence of local farmers
and small entrepreneurs can form a rich local productive
Prepared by UNESCO
atmosphere. Some cities belonging to the UNESCO

Creative City Network (UNCC) draw their creativity from
regional productive landscapes or their rural surroundings.
The city of Östersund (Sweden), for instance, derives its The city, for all its importance, can no longer be
gastronomic reputation from the agricultural activities in thought of only as a physical artifact; instead, we must
the sparsely populated surroundings, as do many of the be aware of the dynamic relationships, both visible and
cities under the category of ‘Crafts and Folk Arts’ such as invisible, that exist among the various domains of a larger
Pekalongan (Indonesia) with the surrounding batik craft terrain of urban as well as rural ecologies.
villages (see case study 92). The key success of these Mohsen Mostafavi, Dean, Harvard Graduate School of Design (USA)
diverse experiences is the innovation of local traditional
activities or the insertion of new innovative compatible
activities.
CONCLUSION
Creative economies are continuing to emerge in small-
and medium-sized cities and, in some cases, remote rural In most regions of the world, small settlements are facing
areas. The nexus between small settlements and the many challenges, partially due to their intrinsic weaknesses
creative economy has recognized ‘smaller-scale creative or being exposed to severe external threats. While local
agglomerations linked to a particular products’, where the resources are deemed to be essential for local people’s
‘place itself is a key component of the product and a livelihood, shaping a particular landscape and forging a
guarantee of its authenticity and symbolic quality, and has unique local identity, they might not be enough to fight
become so important that localities are increasingly their decline. Similarly, local conditions might be too fragile
seeking to protect their distinctiveness by means to cope with strong and unsustainable localized growth
of trademarks or certificates of geographic origin’ (UNdP processes driven by exogenous forces (such us mass
and UNESCO, 2013). tourism) that irreversibly transform their nature.
218
10
C H A P T E R
Reine (Norway)
© bozulek/Shutterstock.com*
Box 7
GOOD PRACTICE CASES IN RURAL OR PERI-URBAN SETTINGS WHERE CULTURE HAS

CONTRIBUTED TO SUSTAINABLE AND INCLUSIVE LOCAL PATTERNS OF DEVELOPMENT
The following selection of cases was identified as part of a cross-regional survey on small settlements prepared
for the international conference ‘Culture for Sustainable Cities’, Hangzhou (China), 10-12 December 2015. For
each case, a cultural domain was highlighted, defined as ‘a common set of economic and social activities that
traditionally have been regarded as being ‘cultural’ from a related domain, consisting of other economic and
social activities that may be considered ‘partially cultural’ or that are more often regarded as being ‘recreational
or leisure’ rather than ‘purely cultural’.3 In addition to this, a ‘supportive domain’ has been introduced, namely
those existing economic activities (primary, proto-industrial or industrial), which support (or have the potential
to support) creativity and innovation.
Zengchong, Guizhou (China). Traditional Dong communities derive their livelihood mainly from self-contained
agricultural activities.
Santarem (Portugal). Local authorities support cultural events around the traditional agricultural fair.
Stollipinovo (Bulgaria). The local government involves the local Roma community in activities related to Plovdiv
Cultural Capital of Europe 2019.
Gagliato (Italy). An international annual nanotechnology conference has revived local development in the area.
Villages in the Pearl River Delta (China). Many innovative agricultural firms are maintaining a system of dykes
and canals, despite the massive urbanization of Guangdong.
Source: Verdini and Ceccarelli, 2015
3
Based on the cultural domains of the UNESCO Framework for Cultural Statistics (UNESCO, 2009) and adapted to small settlements.
However, as witnessed through several cases around the There is an urgent need to reconsider small settlements
world, local tangible and intangible assets can support in the global discourse of sustainable development for
culture-based sustainable economic strategies and their unique contribution in fostering creative and
nurture new creative and innovative activities. Protecting inclusive patterns of local territorial development. To
the cultural, historical and environmental values of small ensure this, there is a need for ad hoc data sets for small
settlements, stimulating their creative revitalization, settlements and ad hoc studies on how culture and
redesigning their identity, carefully managing their creativity can effectively stimulate harmonious territorial
territorial complexity, and building positive partnerships development in different regions of the world. This will be
between the rural and the urban realm, should be fundamental in years to come in order to monitor the policy
considered essential conditions to generate lively and results. In countries where the rate of rural population is
attractive places, and to enhance harmonious territorial still significant, this should be considered as a high priority
development. to ensure the overall sustainability of the urbanization
transition.
219
CHaPTer
11 IMPROVED URBAN
GOVERNANCE
City infrastructure planning with roads and buildings

© kentoh/Shutterstock.com*
Urban governance plays a crucial role in

IN FOCUS
matching needs with offer, and preventing the

destruction of urban resources and neglect of
minorities.
IN THIS CHAPTER
The impact of global forces and how cities
Article:
define their urbanization project not only varies Ana Pereira Roders, Eindhoven University of Technology
by country, but also by city and/or (Netherlands). Smarter urban governance: towards an integrative
neighbourhood. framework
Decision-makers should ensure the Perspectives:

Bonnie Burnham, President Emerita, World Monuments Fund.
empowerment of all key stakeholders, at all Two cities, one vision
levels, to ensure inclusive and sustainable Xu Qin, Mayor of Shenzhen (China). Committing to culture in city
governance. Urban strategies should integrate policies
cultural diversity in their core to maximize
Case studies:
resource efficiency and sustainable Bangkok (Thailand). Heritage as an asset for community
development. development and self-governance
Bologna (Italy). A decentralized model of governance
Cities can employ a cyclical process of Kyoto (Japan). Optimizing urban policies for culture
adaptation, dissemination, implementation Riga (Latvia). Harnessing multi-level cooperation to strengthen
cultural identity
and monitoring of urban governance to better Istanbul (Turkey). Navigating the urban policy and legislative
address resource efficiency and sustainability. landscape
Culture-based urban governance entails

the commitment, collaboration, coordination
and synergy between different stakeholders at
all levels. Stronger regional cooperation and
partnership should be promoted between
220 cities to keep prospering together.
11
SMARTER URBAN GOVERNANCE: TOWARDS AN
C H A P T E R
INTEGRATIVE FRAMEWORK
ANA PEREIRA RODERS
Eindhoven University of Technology (Netherlands)
URBAN GOVERNANCE IS THE SOFTWARE THAT ENABLES THE URBAN HARdWARE TO FUNCTION, ENSURING
AdEQUATE LEGAL FRAMEWORKS, EFFICIENT POLITICAL, MANAGERIAL ANd AdMINISTRATIVE PROCESSES,
AS WELL AS STRONG ANd CAPABLE LOCAL INSTITUTIONS ABLE TO RESPONd TO CITIZENS’ NEEdS (UN-
IMPROVED URBAN GOVERNANCE

HABITAT, 2015a). URBAN GOVERNANCE CAN BECOME ‘SMARTER’ TO HELP CITIES PERFORM BETTER BY
LEARNING FROM THE PAST, CREATING THE PRESENT ANd ENABLING THE FUTURE. THROUGH A VARIETY OF
E-SOLUTIONS ANd NEW TECHNOLOGIES, SMART URBAN GOVERNANCE ENHANCES THE EFFICIENCY OF
COMPLEX URBAN SYSTEMS, INCREASES THE QUALITY ANd dELIVERY OF BASIC SERVICES, AddRESSES
ENVIRONMENTAL CHALLENGES ANd dISASTER RISKS, ANd EMPOWERS CITIZENS THROUGH ACCESS TO
KNOWLEdGE ANd OPPORTUNITIES (UN-HABITAT, 2015b). IN THIS CONTEXT, ‘SMART’ APPROACHES CAN
HELP ACHIEVE THE SUSTAINABLE dEVELOPMENT GOALS (SdGS) IN MAKING CITIES ANd HUMANS
SETTLEMENTS MORE INCLUSIVE, SAFE, RESILIENT ANd SUSTAINABLE.
C ontemporary urban planning and governance has

great challenges ahead. Urban population is growing
by nearly 60 million every year. The pace of growth is
the diversity of cultural exchanges (Clos, 2016). The
informal sector, however, seems to be taking the lead in
the urbanization project, contributing to an escalation of
causing unprecedented and incessant urbanization that
is changing our cities and their quality of life, especially in PERSPECTIVE 41
many countries of Asia, Africa, and Latin America. The TWO CITIES, ONE VISION
Bonnie Burnham President Emerita, World Monuments Fund
increase of migration enhances cultural diversity and
intercultural exchange, but can also raise the risk of It is impossible to imagine Amsterdam Myanmar rising from 750,000 in 2010
conflict. In this context, social and spatial segregation is a (Netherlands) without its typical canal to more than 3 million in 2013; cruise
major challenge in cities worldwide. Besides urban houses. Yet the survival of these buildings ship visitors rose from 300,000 in 2010
population growth and migration, other global forces are was in question in the 1950s, when to 2 million in 2014. Yangon envisions
influencing the urbanization project and causing the far-sighted businessmen created the itself as a national and regional gateway
radical reform of urban planning. The banking crisis has Stadsherstel Amsterdam (The Amsterdam of both trade and tourism. But an outdated
been inflaming neo-liberal thinking since 2007 (dafflon,
Restoration Company). It has played a infrastructure, cloudy legal situation, and
major role in the city’s preservation as a high demand for office and residential
2010). The risks associated with climate change are successful public-private partnership, ben- space obscure the prospects of rescuing
causing the adaptation of the built environment. Finally, efiting from tax incentives and making the stately historic centre. High-rise build-
the technological change is boosting urban change property available as affordable public ings are fracturing the urban landscape,
towards ‘smart cities’. housing. Today Stadsherstel owns over and sidewalks and shade trees are being
600 buildings in the city. erased to accommodate growth in ve-
hicular traffic. Restoration of dilapidated
This model may have implications for housing is slowed by ambiguous own-
This century has been a losing battle with the issue many medium-sized historic cities that ership.
of quantity. In spite of its early promise, its frequent are pressured by rapid growth and tourism
bravery, urbanism has been unable to invent and expansion, resulting in the loss of historic To save Yangon, action needs to be vig-
implement at the scale demanded by its apocalyptic buildings and cultural diversity. Visionary orous and immediate. Formal recognition
strategies are needed to counter this of Yangon’s inner city conservation area
demographics. In 20 years, Lagos has grown from trend. Tourism can be an element of and zoning plan, and a waterfront plan
2 to 7 to 12 to 15 million; Istanbul has doubled from such strategies, and is critical in attracting that relocates the commercial port in
6 to 12. China prepares for even more staggering investment to historic areas. But tourism order to open valuable areas for other
also changes the makeup of local com- use, are key priorities. If these things are
multiplications.
munities unless incentives are provided achieved in the near term, Yangon will
How to explain the paradox that urbanism, as a to ensure that these communities remain advance towards the realization of its
profession, has disappeared at the moment when stable as property values rise and visitors country vision, which embraces heritage
urbanization is everywhere – after decades of constant demand new experiences. and culture as part of a livable and
peaceful environment.
acceleration – is on its way to establishing a definitive, To overcome these challenges, decline is
global ‘triumph’ of the urban condition? countered with renewed investment, en- Much will depend on political leadership,
couraged by incentives; the development but the private sector can also be instru-
Rem Koolhaas, architect
of creative industries helps renew vitality. mental, as in Amsterdam some 60 years
But many medium-sized cities, adjusting ago, by acting as the voice of public
to new economic opportunities opened opinion, and successfully forging a part-
However, all is not negative in the urbanization project. by tourism, urgently need the regulatory nership with government. The visitors
Urbanization is an essential engine for economic framework to ensure that changes are who come to Myanmar hope to see a
development, raising living standards and empowering
incremental and sustainable. city that has kept its colonial charm, and
offers an authentic cultural experience.
societies worldwide. Urbanization can be spontaneous Yangon (Myanmar) is an example of a The city will need the help of international
and/or planned. However, spontaneous urbanization has city in tumultuous change, where devel- models, targeted investment in its cultural
led to limits in public space, basic services and quality of opment in the next few years will deter- assets, and strong civic participation to
life. Planned urbanization, on the other hand, increases mine the future face of the city. Tourism capitalize on these values as pillars on
the benefits for cities, such as the capacity to generate is growing rapidly with visitor arrivals in which to build its future.
wealth, employment, as well as coexistence benefits and
221
urban sprawl and spontaneous peri-urban development cities have also higher levels of air pollution and heat
worldwide. Hundreds of millions of citizens in urban areas island effects on urban population (Angel, 2012). To
are experiencing increasing vulnerability to rising sea become more compact, cities implode, often entailing a
levels, coastal flooding and other climate-related hazards. process of urbanization led by densification, whereas
These are a few of the main challenges that contemporary urban resources are transformed and urban dynamics are
urban planning and governance is considered as failing to strongly intensified (Bandarin and van Oers, 2012).
address. densification can imply the demolition and waste of the
existing building stock, excessive building densities, and
standardized buildings alienated from their setting and
MODELS OF URBANIZATION cultural diversity, causing deep impacts on community
values and urban resources, urban culture and heritage
The impact of global forces and how cities choose to
define their urbanization project not only varies by CASE STUDY 103
CHINA
country, but also by city and/or neighbourhood (Pereira Bangkok (Thailand)

MYANMAR VIET NAM
Roders, 2013). Some cities choose to expand their urban

LAO PEOPLE’S
DEMOCRATIC
REPUBLIC
Heritage as an asset for
areas horizontally, by urbanizing the surrounding rural community development THAILAND
and ecological areas e.g. São Paulo (Brazil). Some cities and self-governance
choose to expand their urban areas vertically, by CAMBODIA
densifying them with higher and/or larger buildings, Precariously situated alongside one of
causing either the demolition of the existing building the remaining stretches of the ancient
stock and/or archaeological remains e.g. Shanghai (China), city walls of Bangkok (Thailand) is the
and/or the construction of new buildings in former public community of Pom Mahakan, with fewer than 300 residents.
areas e.g. Zanzibar (United Republic of Tanzania). For city managers, Pom Mahakan is seen as a squatter set-
tlement, its residents living in dangerous and dilapidated
Other cities remain within their urban area. Some strive slum conditions, lacking legal title to the land. They see it
to conserve their urban grid, e.g. New York (USA), others as an eyesore and an obstacle to their ambitious plans to
their building typology, e.g. Galle (Sri Lanka), and/or their
beautify the Rattanakosin City area – the spiritual, historic
and monumental core of Bangkok and the larger nation. For
key functions, e.g. the port city of Rotterdam (Nether- the residents, Pom Mahakan constitutes a vibrant commu-
lands). Conversely, there are cities who deliberately nity of honest working people who have lived together for
choose to conserve little more than their location, replac- many generations – indeed, members consider themselves
ing their built environment, infrastructure and urban a large family – and whose continued stewardship of the his-
dynamics over time, e.g. Macao (China). Some cities toric area should be utilized as an asset for its sustainability.
choose to shrink their urbanity, converting urban areas
back into rural and natural areas, e.g. Kowloon Walled The Pom Mahakan community is ethnically and religiously
City Park, Hong Kong (China). Some choose to carefully diverse: two Muslim families live alongside others who trace
plan the right moment to develop further, e.g. Ballarat their ancestry to North-Eastern Thailand or to Chinese im-
(Australia), while others simply stop their urbanization migrants. Over decades living side-by-side with one another,
project altogether, e.g. Takwa (Kenya).
they have shaped a shared identity that is literally grounded
in the land they inhabit. Members view their community as
a microcosm of Thailand as a whole: a welcoming place
Cities may be unique in their urbanization project as a where cultural diversity is not just tolerated but an asset for
whole, but when analysed comparatively there are social solidarity and harmonious coexistence. For some city
various similarities. All cities need to provide their administrators, however, the population is too heteroge-
communities with access to housing, infrastructure, neous to constitute a real community, its members lacking
facilities and means of living, e.g. education, jobs and a single common origin and failing to practise a shared tra-
leisure. Older cities, such as damascus (Syrian Arab ditional craft; the time depth of their presence is too shallow
Republic), and archaeological sites such as Carthage to claim the land as their own.
(Tunisia), both inscribed on the UNESCO World Heritage
List, can teach us many lessons on how and why some Pom Mahakan residents do not just assert that their com-
cities succeed in their urbanization project and remain in
munity deserves to remain where it is: they demonstrate it.
Members operate an effective system of self-governance and
use today, while others fail in their urbanization project community management that is always alert to the next
and, when not destroyed, are used as archaeological sites. eviction threats. Residents have effectively defended the
However, there is very little known as to why cities choose community against the scourge of drug abuse that has dam-
one or more of these models of urbanization over time, or aged other communities, rural or urban; their houses are
even which of these models of urbanization has proven neat and public areas swept clean. The community has put
more inclusive, safe, resilient and sustainable. forward a vision of stewardship in which they serve as care-
takers of the area, maintaining their own way of life while
Compact cities are known to benefit society, with accommodating historic preservation and accessibility for
increased innovation, smaller carbon footprints, and tourists, both Thai and international.
encouraging more walking and cycling. However, compact Prepared by Frank Proschan
222
11
C H A P T E R
Potosi (Plurinational State of Bolivia)
© Hervé Casterman
(ICOMOS, 2016). densification can also imply the loss of Over centuries, movements against certain models of
public space and amenities, inadequate infrastructure, urbanization and their impact on cities and their
debilitating poverty, social isolation and increasing risk of communities grew from an elitist interest to a matter of
climate-related disasters. Besides creating social and democracy and human rights. Conservation, like history,
spatial fragmentation, it causes a drastic deterioration of is respectively seen to enrol the conscious commitment
the quality of the urban environment and surrounding to ensure cultural continuity, even where living cultural
rural areas. The common argument for cities to keep memory ends (Matero, 2000). Initially, efforts of urban
demolishing and constructing new buildings and conservation focused on specific monuments and
infrastructure - while unfounded - is that the new will be material conservation, but they have since expanded to
better. include today both natural and cultural heritage, movable
and immovable, tangible and intangible resources.
Heritage conservation has also been redefined as
AUSTRIA
C A S E ST U DY 104 HUNG
SLOVENIA
Bologna (Italy) management of change (Teutonico and Matero, 2003)

CROATIA
and in some cities these efforts are no longer led by local

BOSNIA
A decentralized model of ITALY
HERZEGOV
governance governments alone, but by civil-society and private actors.

despite a steady growth of heritage-designated areas
worldwide, their conservation status seems to keep
Bologna, located in northern Italy and
the capital of the Emilia Romagna re-
gion, has long distinguished itself as a centre of trade and declining, development being one of its main threats
learning. Bologna has utilized citizen participation to rein- (Araoz, 2011).
terpret territorial plans for regeneration, both enhancing the
city’s historic identity and updating its structures according This expansion in cultural diversity and approach are
to contemporary needs. From 2004 to 2009, the Municipal- being strongly debated in theory, as well as explored in
ity of Bologna revised its territorial plan under the Emilia- specific pilot projects. Yet a more structural change in
Romagna urban planning legislation, creating the Municipal urban governance is needed if cities want to grow smarter
Structural Plan. The Structural Plan provides a roadmap for in their resource management and heritage conservation.
Bologna’s development which prioritizes the preservation Urban governance can play a crucial role matching needs
with provision, and simultaneously preventing the
of its heritage and cultural identity, while expanding the no-
destruction of both natural and urban resources. When
tion of heritage to include the larger urban environment.
Already defined by a highly decentralized governance struc- urban resources are maximized, tailoring urbanization to
ture, the Municipality of Bologna created the City Forum to the cultural diversity of cities, their heritage and identity,
provide an additional layer of participatory decision-making there is less need for natural resources to be depleted or
to the implementation of the Structural Plan. This forum new buildings and urban areas to be constructed from
brings together citizens and representatives of institutions scratch. With a broader layering of urban resources,
through participatory town planning workshops. One of the created over time, society can learn to value its evolution
most visible outcomes of the Structural Plan has been the and how it arrived where it is today. Old areas can get new
adaptation of monuments and historic buildings to house uses, and traditions can be reinvented. Such an approach
public services. This has included the transformation of the necessarily raises more attention to the cultural diversity
of cities, than when plainly segmenting and leaving older
Ex Sala Borsa, or the Former Stock Exchange, into Italy’s
areas of the cities to decline. Just like keeping the older
largest multimedia library and a former trade fair into a cul-
tural district through the ‘Manifattura delle Arti’ project,
combining previously scattered municipality and university generations of a family involved in the education of new
cultural institutions (creating a new location for the Galleria generations, learning from their experience and
d'Arte Maggiore and the Cineteca, while instituting the Lu- knowledge, rather than condemning them to isolation and
mière Art Film Theatre and the Film Commission). Similarly, inexistence.
the ‘Bologna of Museums’ project, founded on increased co-
ordination between public and private museums, led to the This approach is feasible for a city, but could benefit
opening of a new venue for the Gallery of Modern Art at the greatly if also explored at regional and even at national
Forno del Pane in 2007. level. A stronger regional cooperation and partnership
Source: IUAV, report for Study Area 3 could help a network of cities to keep prospering
223
together, far more than alone. Cities declining in remains: how can efforts to protect and safeguard the
population could provide their surplus of urban resources world’s cultural and natural heritage be strengthened?
to cities growing in population. Urban conservation is still
in its infancy at the level of urban governance, but given The above-mentioned global forces - urban population
the demand and urgency, it is expected to develop growth, economic crisis, climate and technological
considerably over the next decades. changes - are generating shifts in local strategic agendas,
as well as reform in urban planning and governance
CASE STUDY 105 processes. The impact of these forces on urban planning
Kyoto (Japan) and governance is not uniform, and can depend on
Optimizing urban policies for particular forms of urban planning, which are a product
culture JAPAN
of the dominant social model (Jepsen and Serrano, 2005).
Four principal forms of urban planning have been defined,
Also known as the City of Ten Thou- concentrating on: (a) urban design and (b) land use, as well
sand Shrines, Kyoto is the former im- as (c) indicative policy-based approaches and (d) strategic,
perial capital of Japan, whose historic sectorally integrating approaches (dühr et al., 2010).
monuments encompass an array of re- National approaches draw on a combination of models
ligious, administrative and vernacular buildings, as well as whilst generally exhibiting a dominant approach.
a well-preserved urban morphology. In Kyoto, Japanese
modernity goes hand-in-hand with an increasingly institu- Past studies have revealed the weakness of strategic
approaches to coordinate actions of a wider set of
tionalized appreciation of and approach to heritage safe-
guarding. Not only is tourism a thriving industry, but local
stakeholders – public, private and civil society – in urban
traditional industries and numerous education institutions
linked to Japanese culture contribute to the thriving reputa- conservation, and heritage in particular (Pendlebury,
tion of the city. The major industries of Kyoto include tradi- 2009). Previous forms of urban planning – notably zoning
tional Japanese crafts and practices such as kimono and transportation networks – seem to contribute to
production or geisha districts. The city is also famous for a urban sprawl, environmental degradation and
tradition of over 1,000 years of festivals such as Gion Mat- greenhouse gas emissions (EEA, 2006). There is a clear
suri, which is still practised to this day. demand for a better understanding of the processes and
impacts of urban planning and governance in urban
As part of the city’s New Landscape Policy launched in 2007, conservation.
five basic actions were developed around the concept of the
historic urban landscape, tailored to suit the region’s speci-
ficities: (1) conform to the surrounding scenery in the basin; CASE STUDY 106 ESTONIA
(2) maintain the harmony between traditional culture and Riga (Latvia)
modern development; (3) contain a multitude of spaces Harnessing multi-level LATVIA
which illustrate the unique characteristics and identity of cooperation to strengthen
Kyoto; 4) enhance the city’s livelihood; and 5) foster the de-
cultural identity
velopment of partnerships amongst government authorities, LITHUANIA
local residents and enterprises. A comprehensive mapping

The Latvian capital has built on a solid collaboration be-
of Kyoto and its surrounding regions was carried out. The
tween state and local municipality institutions to further cul-
Kyoto City Landscape Policy defined by the above-men-
tural development in the city. The State Inspection for
tioned pillars materialized in five main elements to inform
Heritage Protection and the Riga City Council, which encom-
city planning and legislation in Kyoto: 1) building height re-
passes the City Development Department of Riga, the Riga
strictions; 2) the controlled design of new constructions; 3)
City Construction Board and the Riga City Architect’s Office,
the surrounding scenery and vistas; 4) regulated commercial
are responsible for the city’s long-term development plan.
advertisements; and 5) historical streetscapes.
In addition, the Council for Preservation and Development
Source: WHITR-AP, report for Study Area 6 of the Historic Centre of Riga was established in 2003, al-
lowing all stakeholders to become involved in preservation
and regeneration processes concerning the old city centre.
These three organisms have been supported by Riga’s Urban
MODELS OF URBAN GOVERNANCE
Institute and its Free Riga network, in particular, in project
integration for urban regeneration, wasteland reclamation,
and rehabilitation of derelict spaces, old buildings and fac-
Countries are well aware of the important role of urban tories for cultural and social use. The cooperation between
conservation in their sustainable urban development, and different regions, domains and authorities has facilitated the
there are enough international recommendations and organization of cultural and creative activities as demon-
conventions to confirm it. Recently, countries worldwide strated by the multitude of events hosted by Riga during the
agreed to make cities and human settlements inclusive, past decade, together with its nomination as European Cap-
safe, resilient and sustainable by 2030 (United Nations, ital of Culture in 2014, which have largely contributed to
2015), calling on countries, cities and communities to the city’s development and regeneration.
strengthen efforts to protect and safeguard the world’s Source: Strelka Institute for Media, Architecture and Design, report for
cultural and natural heritage. However, the question
Study Area 4
224
11
C H A P T E R
Today, there is greater attention on the impact of large- P E R S P E C T I V E 42
scale urbanization projects driven by models of urban COMMITTING TO CULTURE IN CITY POLICIES
Xu Qin Mayor of Shenzhen (China)
expansion. The practice of performing environmental

impact assessments and/or strategic environmental Culture is an important embodiment of development process, so as to enhance
assessments, led by experts in natural heritage, or even by a city’s soft power and drives sustainable cultural communication and cooperation
models of densification, e.g. high-rise buildings by experts urban development. Enhancing cultural among regions around the world, and
in cultural heritage, has been developing, and today there development supports historical contin- vigorously develop cultural and creative
are far more assessments and experts in impact uation and cultural heritage that enriches industries. In 2013, Shenzhen was honoured
assessment studies, e.g. social impact assessment, health the meaning and value of a city. It can as the Global Model City for Promoting
impact assessment and heritage impact assessment.
also help increase inclusiveness, promote Books and Reading by UNESCO. We also
dialogue and communication, inspire in- host cultural activities each year, such as
novation and creativity among citizens, Reading Month and the International
The impact of specific development projects and models and is a major force for sustainable urban Culture Industry Fair (ICIF), which con-
of densification, e.g. high-rise buildings, is being closely development. tribute to efforts in building cultural
monitored and the impact assessed by experts in cultural services for the public good. We are
heritage. However, management is often project-based As an immigration city boasting openness, committed to continuously improving the
and unconnected, neglecting incremental impacts and/or inclusiveness and cultural diversity, Shen- openness, inclusiveness and innovation
the accumulative impacts of small-scale interventions.
zhen has developed a culture of innovation of the city, as well as the quality of
and tolerance and a commitment to urban development. Culture is integral
With the exception of heritage-designated resources steady, quality growth. We pay attention to achieving Shenzhen’s future with un-
and those inscribed on the World Heritage List, urban to culture’s role in the sustainable urban limited possibilities.
resources are largely unmonitored and consequently,
their use and conservation status is globally indeterminate.
Urban planning and governance need to become smarter transversal, a driver of sustainable development; and (3)
to meet the targets set by the Sustainable development culture as fundamental, as the culture of sustainability
Goals. The UNESCO Recommendation on the Historic (Figure 3).
Urban Landscape is key in this process of targeting greater
resource efficiency and management effectiveness in
urban governance, not because it offers a roadmap to Figure 3. THREE MAIN APPROACHES ON THE ROLE OF CULTURE
IN GLOBAL SUSTAINABLE DEVELOPMENT
success, but because it fosters cities’ capacity to learn
and become smarter. Accordingly, cities need to employ
Adapted from Soini and Birkeland, 2014; Pereira Roders, 2013
a cyclical process of adaptation, dissemination,

implementation and monitoring of urban governance, and ECOLOGICAL
heritage management in particular (UNESCO, 2011).
Current methods and tools in urban governance may have
been efficient in the past, but may be proven inefficient
today in the face of present and future challenges. SOCIAL ECOLOGICAL
CULTURE SOCIAL ECOLOGICAL
Assessing their effectiveness and following a continuous
process of urban planning and governance reform enables
SUSTAINABLE
cities to keep control and better address resource CULTURE
ECONOMIC CULTURAL ECONOMIC SOCIAL ECONOMIC or
efficiency and sustainability. CULTURE OF
SUSTAINABILITY
Methods and tools can be considered both efficient and

Self-standing Transversal Fundamental
inefficient in different cities, thus cities should not reject
certain methods at the outset just because they have
failed in other cities. With the technologies available
today, cities no longer need to learn alone. There is a
wealth of experience worldwide, and over time cities can The strengths and weaknesses, opportunities and threats
learn from each other. The effectiveness of certain of such approaches are largely underexplored, together
methods and tools is often too quickly generalized, or with the lack of a global understanding on how they differ
regionalized, without properly framing its context in time or relate to each other, how they are applied in practice,
and place. or how effective they are in helping cities achieve
sustainable urban development. Further research is
The role of culture in sustainable development, and needed, but entails the cooperation between different
urban governance in particular, has long been debated disciplines, academics and governments. The recognition
and seems to be no longer in question. Soini and Birkeland of cultural practices in all their diversity, as well as the role
(2014) report three main approaches on how culture is they play in the sustainable development of cities, is
integrated in sustainable development: (1) culture as self- crucial to recognize and assess the role of culture in
standing, a fourth pillar of sustainability; (2) culture as relation to the other domains in sustainable development.
225
SMARTER URBAN GOVERNANCE
Smart urban governance is at the core of smart cities’ Urban politics, in an era of increasing government
initiatives. When defining the success factors in smart
activity in planning and welfare, must balance the
cities initiatives, Chourabi et al. (2012) identify eight
demands for ever-increasing central bureaucratic control
clusters of factors: (1) management and organization; (2)
technology; (3) governance; (4) policy; (5) people and
against the demands for increased concern for the unique
communities; (6) the economy; (7) built infrastructure; requirements of local, specialized interests. The welfare of
and (8) the natural environment (Figure 4). all and the welfare of minorities are both deserving of
support; planning must be so structured so practiced as to
account for this unavoidable bifurcation of the public
Figure 4. THE SMART CITY INITIATIVES FRAMEWORK
interest.
Source: Chourabi et al., 2012
Paul Davidoff, planner and planning theorist
E PEOP
LE
NC CO
RNA M
M
E
Federal systems, such as in the United States, Canada and
V
UN
GO
TEC Mexico, present additional challenges derived from the

ITI
ON H
TI
ES
particularities of the relationships between different

NO
A
levels of governance. Challenges related to multilevel

ORGANIZ
LOGY
SMART CITY governance became the model for many cities worldwide,
NA ONMENT
Initiative with inter-related levels, ranging from supranational to

AL
ECON
national and subnational stakeholders, involved in urban

TUR
governance.
VIR
OM
POLICY
EN
While in the past governance was primarily national, today,

Y
intergovernmental and supranational institutions are

increasingly steering regional and global development.
INF E
RASTRUCTUR
BUILT Simultaneously, a stronger interdependence is developing
among national and subnational governments, with local
governments taking the lead and even cooperating directly
with intergovernmental institutions.
Chourabi et al. (2012) noted an imbalance in the available
literature per cluster of factors. In particular, there was Local governments are increasingly aware of the role of
little literature on smart cities addressing issues related culture in local development (see Chapter 9). However,
to urban governance. These studies did reveal a growing local governments know they will not succeed alone.
number of cities worldwide leading projects and Subnational, national and supranational governments, civil
initiatives for a smarter urban governance (Griffith, society and private sector actors are all expected to play a
2001). Many of them aim to better serve communities role and co-create urban governance. Collaboration,
and improve their quality of life. Chourabi et al. (2012) coordination and fostering synergy between the different
identified eight key factors that determine the success or stakeholders are, therefore, becoming the norm.
failure of governance. These are respectively: (1)
collaboration; (2) leadership and championing; (3) The active participation of local communities in the
participation and partnership; (4) communication; (5) data drafting, implementation and reform of public policies has
exchange; (6) service and application integration; (7) proven to lead to greater inclusiveness and respect for
accountability; and (8) transparency. the diversity of cultural and social practices in cities
worldwide. Collaborations with academia, involving
To innovate and become smarter, urban governance students and scholars in the reform of public policies, as
needs a normative drive addressed in policy. However, well as the development of innovative public-private
changes in urban policy are considered more ambiguous, partnership mechanisms have also proven successful.
as policy decrees both institutional and non-technical However, a step forward is needed, not only by making
issues, and creates conditions to enable sustainable urban such cooperation the norm, but by empowering the varied
development (Yigitcanlar and Velibeyoglu, 2008). They stakeholders with enabling methods and tools.
involve laws and regulations, but also norms, actions or
behaviours that people accept as good or are used to
taking for granted (Sout, 2000).
226
11
C H A P T E R
CONCLUSION
BULGARIA
C A S E ST U DY 107
Istanbul (Turkey)
TURKEY
Navigating the urban policy A smarter urban governance is desirable and possible.

and legislative landscape Steps have already been taken in supranational
governance with the adoption of the 2011
GREECE
S
Since 1985, several sites within the CYPRUS
Recommendation on the Historic Urban Landscape and
the targets to strengthen the use and conservation of
historic centre of Istanbul have been inscribed as the
cultural and national heritage to achieve SdG Goal 11 to
UNESCO World Heritage property Historic Areas of Istanbul.
Integrated management, including tourism and visitor man-
agement, has become of vital importance to Istanbul as one make cities inclusive, safe, resilient and sustainable.
of the most popular tourist destinations in Europe. Fostering greater knowledge of urban resources and
heritage, in particular, enables an informed and evidence-
The beginning of the 2000s brought about changes to the based approach to urban planning that fosters respect
city’s urban policy and legislation, including a new frame- for cultural identity and the environment. This cultural
work with a direct effect on urban renewal projects and the dimension of the city and its sustainable development
cultural life of the city. The city’s current municipal laws in- perceives cities as a dynamic urban ecosystem, and relies
troduced in 2004 and 2005 have expanded the jurisdiction on new forms of urban governance towards an integrative
of the greater municipality, thus giving it control of the dis- framework for smart urban governance. The key is to
understand how this approach helps cities to further
trict municipalities. The Law for the Protection of Dilapidated
develop and become more sustainable, in particular while
Historical and Cultural Real Estate Through Protection by Re-
newal (no. 5366) was passed in 2005, together with further
laws aimed at enabling the urban transformation of the city fostering the role of culture.
by giving the municipalities the authority to implement
urban redesign projects without having to face the standard To lay the basis for a smarter urban governance, the
regulations in the legal system. Concurrently, it has facili- commitment of all stakeholders at all levels is needed. The
tated the establishment of partnerships and collaboration role of local authorities and cities networks is important
between municipalities and private companies, which has as platforms for knowledge exchange. Urban policies
sometimes led to the approval of ‘mega-projects’. Urban must be adapted to facilitate the inclusion of culture and
mega-projects in Istanbul have met with substantial public heritage in urban planning methods and tools, with
criticism. Some groups have contested the projects, alleging adequate and innovative financial means, eventually
that the projects exacerbate socio-economic inequalities, through public-private partnerships (see Chapter 12).
The knowledge gap in the role of culture in sustainable
that the public are not involved in the decision-making pro-
cesses, and the majority does not benefit from them. In
2013, plans to build a large-scale shopping complex at Gezi urban development should be addressed at all levels of
Park were halted following massive public protests. multi-level governance. Partnerships with universities can
help identify urban resources and develop indicators,
The shifts in policy and legislative frameworks have also monitoring tools, financial instruments, as well as training
sparked grassroots arts initiatives, along with partnerships and education programmes for urban professionals.
between civil society, non-profit organizations and cultural Building on previous experiences of older cities,
associations across the city. This has served to broaden the quantitative and qualitative indicators could be
cultural offer and develop the creative industries in the city, elaborated to measure direct and indirect spin-offs of
such as through adaptive reuse of abandoned buildings for culture on urban policies. Those indicators should
the arts, developing mixed-use spaces for creators, and encompass the varied components of public policies (e.g.
economy, education, tourism and science) and address
building creative cooperatives.
Source: IUAV, report for Study Area 3 various urban resources and heritage in particular
(tangible and intangible heritage, cultural and natural,
movable and immovable). The motto is to define and use
urban governance and urban planning more proactively,
and leverage resource management and heritage
management for a long tradition of reactive problem-
solving.
227
CHaPTer
12 URBAN DEVELOPMENT FINANCING SUSTAINABLE
Sheki, the Khan’s Palace, Shaki (Azerbaijan)

© REZA/Webistan*
IN FOCUS
There is variation between countries in

the funding mix and dominant financial models
(public funding, private interventions and IN THIS CHAPTER
so-called ‘third sphere’ financing) for culture. Article:
Financing is influenced by local conditions such Christian Ost, ICHEC Brussels Management School (Belgium).
as growth, level of income, public governance, Innovative financial approaches for culture in urban development
fiscal system and banking structures. Financial
Perspectives:
mechanisms should be adapted to local Xavier Greffe and Francesca Cominelli, University Paris I
conditions. Sorbonne (France). Renovating historic dwellings in a World
Heritage city: the case of Bordeaux
Local stakeholders should enhance their David Throsby, Macquarie University (Australia). Promoting
sustainable urban development through investment in cultural
investments in cultural projects to contribute heritage
to job creation, stable incomes, welfare and
enhancing the liveability of a place, taking into Case studies:
account that financial returns from private or Quito (Ecuador). Employing diverse financing strategies to restore
historic cities
public investment in urban cultural projects Lagos (Nigeria). Leveraging public-private partnerships for
benefit broader outcomes. cultural sustainability
Hoi An (Viet Nam). Reinvesting economic dividends to support
While financing culture generally used to heritage conservation
Delhi (India). Public-private partnership drives heritage
be a ‘top-down’ process, new stakeholders are revitalization
now taking the lead, including communities and
property owners in urban areas. Public-private Boxes:
partnerships should thus be enhanced. Examples of financing institutions and organizations for
cultural projects
Managing a portfolio of urban cultural assets
Local authorities have a crucial role in Investing in historic cities and cultural heritage for sustainable
improving the management and financing development
228 of cultural assets in their cities.
12
INNOVATIVE FINANCIAL APPROACHES FOR CULTURE IN
C H A P T E R
URBAN DEVELOPMENT
CHRISTIAN OST
ICHEC Brussels Management School (Belgium)
THE QUESTION OF FINANCING SUSTAINABLE URBAN dEVELOPMENT IS AN IMMENSE CHALLENGE, EVEN
FINANCING SUSTAINABLE URBAN DEVELOPMENT

IF WE ACKNOWLEdGE TOdAY THAT NATURAL ANd CULTURAL ASSETS SHOULd BE CONSIdEREd AS
SUBSTANTIAL SOCIAL ANd ECONOMIC dEVELOPMENT OPPORTUNITIES. NATURAL ANd CULTURAL
ASSETS ARE PRESENT ALL AROUNd THE WORLd WITH NO dISCRIMINATION BETWEEN ECONOMICALLY
RICH OR POOR COUNTRIES. CULTURAL RESOURCES ARE EVERYWHERE. THEIR CONTRIBUTION TO
A BETTER QUALITY OF LIFE IS dEMONSTRATEd, IF NOT TOTALLY RECOGNIZEd, ANd FINANCING
SOLUTIONS ARE FAR FROM BEING OUT OF REACH.
M any cultural projects and investments have

benefited in the past from relatively straightforward
financing, either public funding, private interventions or
non-profit organizations). In some parts of the world,
strong public control, regulation, funding and cultural
policies have been almost the rule. In others, private
so-called ‘third sphere’ financing (charities, foundations, funding is predominant. But there are still many countries
that lack both effective public intervention and privately-
C A S E ST U DY 108 funded initiatives for cultural projects.
Quito (Ecuador)
The economic crisis has taken its toll the world over, with
COLOMBIA
Employing diverse financing

strategies to restore historic
ECUADOR BRA
budget cuts, reduced cultural expenditures and public
debt financing. There will be fewer financial resources for
PERU
cities
culture if there are no recognized economic values for
Quito, a rapidly-growing city of 2.2 million people and the projects, and there will be no recognized economic values
capital of Ecuador, is widely considered to be one of the old- if cultural impacts are not measured in a more systematic
est, best-preserved cities in South America. Founded in the and holistic way, and shared and disseminated among all
sixteenth century by the Spanish conquistadores, the city interested parties.
sits upon the ruins of an ancient Inca settlement once known
as the Kingdom of Quito, combining monumental religious
architecture with Spanish, Italian, Moorish, Flemish and in-
digenous influences. Today, Quito is one of only two cities Ultimately, even as the world is globalized, the desire
(along with Kraków) designated by UNESCO as a World Her- of people to identify with place is unlikely to disappear.
itage property, a title it has held since 1978. Humans have always been a migrating species, but
everywhere they stopped, they settled down. That urge
Following a major earthquake in 1987, these efforts were
further supported by the Rescue of the Cultural Heritage is far too deeply rooted in human evolution to vanish
Fund (FONSAL), which operated from 1987 to 2010. FONSAL in our time.
was primarily funded by taxes (including a 6% income tax Michael B. Teitz, University of California, Berkeley (USA)
in Quito Cantón) and loans from the Inter-American Devel-
opment Bank. In the mid-1990s, the City Council of Quito
drafted a master plan for the conservation of the historic
centre, which included the creation of a trolleybus to reduce Therefore, the agenda for integrating sustainable
traffic congestion and pollution, improvements to sewer development in cultural decisions is timely. As the interest
in culture has expanded, ‘traditional ways’ for financing
lines, and restoration of historic buildings and churches. At
the same time, the ‘Historic Centre Rehabilitation Project of
culture have become constrained, or even obsolete.
Quito’ was implemented to encourage tourism by preserving
the city’s historic character, revitalizing traditional commer- However, sustainable urban development objectives offer
cial activities, and facilitating access to services. Both of the opportunity to change our appreciation of culture as
these projects were funded by a US$41 million loan from an economic resource, providing outcomes that justify
the Inter-American Development Bank and an additional specific and innovative financial public and private
US$10.3 million from the Ministry of Finance. investments.
As part of the implementation of these programmes, the City The international conference ‘Culture for Sustainable
Council created 28 Community Development Centres around Cities’, held in Hangzhou (China) in december 2015,
the city, which coordinate cultural, educational and recre- provided a key platform to share experiences and propose
strategic recommendations to strengthen the role of
ational activities for local residents. Likewise, the Participa-
culture in sustainable urban development, in the context
tory Management Plan encourages the use of parish
assemblies, roundtables and forums to involve citizens in
the management of the historic centre. In January 2014, the of the 2030 Agenda, in particular its Sustainable
Management Plan of the Historic Centre of Quito was also development Goal (SdG) 11 ‘Make cities and human
launched, which aims to strengthen and protect the heritage settlements inclusive, safe, resilient and sustainable’, and
value of Quito for future generations. its target 11.4 ‘Strengthen efforts to protect and
Source: Pontifical Catholic University of Chile safeguard the world’s cultural and natural heritage’
(United Nations, 2015).
229
CHALLENGES IN FINANCING CULTURE regeneration projects may benefit high-income residents,

business, or luxury retail activities. Historic centres in
The context of the economic crisis, in particular the developing countries with high intangible values may also
financial and banking crisis, has harmed financing in foster international interest and financial support.
general across markets. Paradoxically, an economic crisis
is synonymous with high financial market liquidity, coupled However, although private investment in a cultural
with increasing difficulty for financing individual and project may be financially-justified, this does not imply that
collective projects, due to loss of project profitability, it is economically-justified when social and economic
greater uncertainty and higher risk for the lender. The key outcomes of the investment generate social and
factor is whether an investment is financially justified. economic costs that are not considered by private
Examples such as tourism-related investments for iconic investors. Traffic congestion, environmental and social
monuments in World Heritage cities have profitability damages, gentrification and social exclusion are some
potential for attracting investors. Similarly, urban examples of these. In addition, public authorities should
not be exonerated from sound economic justification on
cultural investments that generate broad impacts.
Market failures, externalities and the peculiar character-

RENOVATING HISTORIC DWELLINGS IN A WORLD HERITAGE CITY:
THE CASE OF BORDEAUX
Xavier Greffe and Francesca Cominelli University Paris I Sorbonne (France) istic of ‘public good’ significance for cultural and natural
assets have long been discussed among economists in
Bordeaux is a port city of about 250,000 of Bordeaux. To date, the work has been recent decades. There is a consensus that robust eco-
inhabitants, located along the Garonne carried out through two 5-year financing nomic value assessment should be done prior to any
plans of €15 million, 2003─2008 and
private or public decisions in the field of culture, and that
River in south-west France. During the
Middle Ages, the city experienced strong 2011─2016. The financial aids support
economic prosperity that prompted the individuals, owner-occupiers and low- support for culture should be placed at the heart of other
urban and architectural transformation income families who are willing to acquire economic and social policy areas, ‘encouraging a multi-
that led to its present-day cityscape. In a property in the historical centre, and disciplinary approach and fostering lateral thinking’ (KEA
2007, the World Heritage inscription of owners renting their properties at a low European Affairs, 2012).
Bordeaux, Port of the Moon, contributed rent level. The aids are adapted to each
to recognizing the outstanding urban specific situation and can be used to im-
TOWARDS FINANCIALLY AND
and architectural values of the city, and prove comfort, security, hygiene, refur-
ECONOMICALLY-JUSTIFIED PROJECTS
its role as a place of exchange for over bishing of apartments and housing; to
2,000 years. improve energy efficiency in housing
units, to adapt housing to better suit the
The buildings within the site are mainly elderly or people with limited mobility. Culture has benefited from a wide range of reliable
in private ownership (individuals, enter- The aid enables owners to initiate restora- financial instruments in the past. Although urban cultural
prises and non-governmental associations). tion works to safeguard cultural heritage assets may seem very similar across the world (museums,
heritage buildings, public spaces, etc.), local conditions
In addition, 64 buildings are listed on and increase the attractiveness of the
the national registry of historic monuments
determine how financial instruments may differ greatly
historic centre (both for inhabitants and
(monuments historiques), 283 buildings tourists), sharing expenditure between
are on the historic monuments additional the owners and the municipality, and between countries on the basis of growth, level of income,
registry (inventaire supplémentaire des avoids the gentrification of central neigh- public governance, fiscal system and banking structures.
monuments historiques), and 31 ensem- bourhoods in favour of diversity. Four types of measures are going to become common
bles are protected as industrial heritage. practice for all countries in the future (Council of Europe,
This Project has multiple positive effects. 1991a; 1991b).
The city, and especially its historic centre, Though a system of public subsidies
suffers from a weakened housing market,
Administrative measures aim to create favourable
and tax exemption, it encourages the
with many vacant or derelict properties, restoration of privately-owned historical
small rental housing units, high demo- buildings. Tenants can count on decreased conditions for potential investors. This entails providing
graphic turnover, and a lack of diversity rents, owners can obtain in exchange a useful information on cultural heritage use or reuse,
in its population. To address this, the significant reduction of their restoration management plans for single monuments or areas of
city aims to increase population by more costs, and the municipality can easily recognized importance, simplifying administrative
than 100,000 residents and construct increase the number of housing units at procedures, appointing project coordinators and field
operators, and adopting favourable rental policies.
60,000 new housing units through its an accessible price. Besides offering the
Urban Renewal Project 2008─2030. financial means, InCité provides support
Specific focus is on the historic city centre to owners to help them evaluate the
to improve the quality of life, promote costs of their restoration projects and Intervention measures aim to mobilize private investors,
its economic and cultural role, offer their feasibility, prepare subvention re- encourage the investments of profits in new conservation
modern living in restored historical set- quests and choose future tenants. The operations, through revolving funds and housing
tings, and increase social diversity. works have encouraged the initiation of improvement and programmes.
further works in the rehabilitation of the
Financial measures include the provision of subsidies (or
Within the Urban Renewal Project, the historic centre, as well as of other neigh-
public-private company InCité leads the bourhoods where similar projects have
planning and renewal of the built heritage been implemented. grant aids), loan intervention (low mortgage rates, public
guarantees, longer payback period), and taxation in favour
of investment and risk-taking initiatives (tax on cultural
230
12
C H A P T E R
Shanghai (China)
© Rawpixel.com/Shutterstock.com*
tourism, income or profits tax, inheritance tax, land and

property taxes, value-added tax on cultural sales). Box 8
EXAMPLES OF FINANCING INSTITUTIONS AND
ORGANIZATIONS FOR CULTURAL PROJECTS
Specific measures to promote sponsorship may be taken
to encourage donations or patronage through tax
incentives (for individuals, companies, foundations and Charitable trusts
non-profit organizations), and by appropriate legal Individuals use charitable trusts to leave all or part of their estate
frameworks to encourage philanthropy and charities to to charity, both for philanthropic purposes and for certain tax
support cultural projects. benefits. Charitable trusts can have many different purposes and
missions, and generally operate as private non-profit organizations,
Apart from the above-mentioned common measures, for example, the National Trust (UK) and the J.Paul Getty Trust (USA).
raising funds will remain the main objective of many non-
profit organizations around the world. There are today Foundations
many specific sources of funding, including lotteries, A foundation is a legal categorization of non-profit organizations
concessions agreements, transfer of development rights, that typically either donate funds and support other organizations,
crowdfunding initiatives, to mention just a few. While or provide the source of funding for its own charitable purposes.
decisions towards culture used to be generally top- This type of non-profit organization may differ from private foun-
down processes, from either public or large private dations endowed by individuals or families, such as Fondation Pierre
organizations, new stakeholders are taking the lead, Bergé-Yves St Laurent and the Aga Khan Development Network.
including communities and property owners.
Private limited companies
Business structures that combine the pass-through taxation of a
FINANCING INNOVATION AND partnership or sole proprietorship with the limited liability of a cor-
CREATIVITY THROUGH URBAN CULTURAL poration, for example, the Dutch-based urban restoration company
ASSETS Stadherstel Amsterdam NV.
Cultural projects in an urban sustainable context may be Revolving funds

financed as part of broader programmes of technological Funds or accounts that remain available to finance an organization’s
and economic nature (for example, smart cities), building continuing operations without any fiscal year limitation, because
networks, fostering innovation and creativity, with a focus the organization replenishes the fund by repaying money used from
on cultural and creative industries. the account. Revolving funds have been used to support both gov-
ernment and non-profit operations, for example, the National Trust
In times of harsh competition between cities to attract for Historic Preservation (USA).
new residents, visitors and business, cultural and natural
resources have become crucial factors in helping regions Endowment funds
develop, supporting creative talent, boosting sustainable Investment funds set up by an institution in which regular with-
tourism and fostering social cohesion. Together with fiscal drawals from the invested capital are used for ongoing operations
incentives, local labour skills and communication tools, or other specified purposes. Endowment funds are often used by
cities are expected to possess lifestyles, quality of life, non-profit organizations and may be funded by tax deductible donations,
contemporary urban design, cultural services and, of for example the National Endowment for the Arts (USA).
course, natural and cultural heritage.
International organizations and development banks
Urban planning and conservation management plans UNESCO, European Union, World Bank, World Monuments Fund,
must connect with and integrate the quality of life International Music Council, Inter-American Development Bank,
principle, which is founded on many criteria: walkability, Asian Development Bank, Council of Europe Development Bank.
accessibility, diversity, bicycle friendly,1 ‘slow city’ and
Source: Christian Ost, Innovative financial approaches for culture in urban development
1
See: Copenhagenize Index http://copenhagenize.eu/index/
231
CASE STUDY 109 NIGER innovation as a ‘creative destruction process’, explaining

Lagos (Nigeria) long development waves that are initiated by major
Leveraging public-private scientific inventions and enhanced by risk-taker
entrepreneurs (Schumpeter, 1934). This theory sheds
ENIN
partnerships for cultural

sustainability NIGERIA some light on the current understanding of culture-based
creativity as a key driver in the global economy, to nurture
Historically, Lagos (Nigeria) has served CAMEROO innovation and contribute to stimulating knowledge-
multiple parties as a strategic port, based societies and the creative industries.
base and gateway to the West African hinterland. The city
comprises marshland, sand beds and a series of low-lying In addition to local and regional measures and incentives
islands that encase the city’s eponymous lagoon. Lagos is a to encourage private investment in cultural and creative
strong attraction for migrants, whose population represents industries, new types of financing mechanisms are
regularly applied to these industries as new forms of the
a culturally heterogeneous composition of more than 250
future knowledge-based economy. The importance of
ethnic groups hailing from other areas of Nigeria and West
Africa, which have made Lagos the dynamic melting pot it
is today. With the concentration and diversity of its hosted innovative financial vehicles is boosted by the high
exchanges, Lagos is a nexus for a recent wave of social and number of micro, small- and medium-sized enterprises
creative entrepreneurism, which has catalysed a surge in
cultural consumption as well as increased investment, albeit
Box 9
mostly private, in cultural infrastructure.

MANAGING A PORTFOLIO OF URBAN
Legacy and Jaekel House CULTURAL ASSETS
Historic cities possess cultural assets that may be

Jaekel House in Lagos is the secretariat of the Joint
Railway/Legacy Committee and currently serves as a mini- considered as cultural capital, as they require invest-
museum, exhibiting artefacts and photographs from colonial ment of physical and human resources in their con-
and post-colonial Nigeria. Jaekel House is part of the former struction, maintenance to prevent deterioration, and
National Railway Corporation (NRC) compound, which was give rise to a flow of services over time (Throsby,
the focus of a restoration project in the late 1990s and 2001). But how can historic cities increase the return
2000s. The NRC, built in 1898, was home to a number of on their cultural capital portfolio?
colonial-era buildings and rail infrastructure that had fallen
into disrepair. In 1997, the NRC transferred ownership of a Local authorities have a crucial role in improving the
total of four buildings to Legacy, a non-profit organization,
management and financing of cultural assets in their
on the condition that they be used for heritage preservation
cities. By bringing together all types of cultural and
purposes. The group began with the Jaekel House project,
named after the late Francis Jaekel, a former superintendent natural assets, the city enhances the current and po-
of the NRC, involving the restoration of the dilapidated tential value of these assets (Figure 5). The portfolio
building with as much historical accuracy as possible. Legacy approach aims to enhance the potential of functional
has also carried out measurement and documentation exer- and physical integration of cultural capital.
cises on heritage buildings in Lagos Island to create a
Figure 5. BUILDING ON CULTURAL AND NATURAL
ASSETS: A PORTFOLIO APPROACH
database for potential preservation projects and to advocate
for their protection through public education on architectural
Source: Christian Ost
heritage. The group receives support from the Ilukwe Estate,
Leventis Foundation, the Ministry of Tourism, as well as a
network of volunteers who give their time and provide fund-
ing for the projects.
cultural vibrancy. Several studies attest to how successful

urban cultural investment can be in turning historic
centres into sustainable developed areas (for example,
carried out by the Organization of World Heritage Cities
(OWHC), United Cities and Local Governments (UCLG),
and Forum d’Avignon). In developing countries, quality of
life is also part of urban policies to prevent rural exodus
All cities may not have iconic cultural or natural heritage,
(djenné, Mali), to attract foreign business (dakar, Senegal),
or to develop high-tech investments (Bangalore, India).
yet historic places possess cultural and natural re-
sources, whose functional and physical integration
Joseph Schumpeter is considered a pioneer in formulating
may generate many economic and social outcomes.
and modelling the innovation process as a driver for
Managing a portfolio of cultural capital contributes
economic growth and development. He emphasized
to the financing of historic urban landscapes.
232
12
C H A P T E R
that operate in this field, whose access to risky assets and adaptive reuse’ (UNESCO, 2015b). As a policy

markets is limited. Such tools also include venture capital principle to integrate sustainable development into
in developed economies and micro-loans in developing heritage conservation, UNESCO also suggests to ‘identify
economies. and promote opportunities for public and private
investment in sustainable development projects that
Historic cities are an ideal location for small-sized, future- foster local cultural and creative industries and safeguard
oriented creative industries because of the human scale, intangible heritage associated with World Heritage
long-term perspective provided by protected heritage, properties’ (UNESCO, 2015a).
and the creative stimulation of the artistic landscape.
UNESCO refers to this phenomenon as the need for A PARADIGM SHIFT ON THE FINANCING
‘human scale, compact and mixed-use cities in promoting FRONT
culture and creativity in urban development, regeneration
As important as cultural values are, today they need to be
C A S E ST U DY 110 CHINA embedded in a holistic perspective, together with the other
Hoi An (Viet Nam) M
main pillars for sustainable development (environmental,
L O PEOPLE’S
EMOCRATIC
Reinvesting economic REPUBLIC
dividends to support heritage P E R S P E C T I V E 44

conservation THAILAND
VIET NAM
PROMOTING SUSTAINABLE URBAN DEVELOPMENT THROUGH
INVESTMENT IN CULTURAL HERITAGE
David Throsby Macquarie University (Australia)
CAMBODIA
Hoi An (Viet Nam), a UNESCO World
Heritage property, is a small city covering
In many towns and cities in developing sition from a purely financial point of
an area of approximately 60 km² with just over 121,000 in-
countries, the long-term processes of view. Such an outcome may be demon-
habitants. The reinvestment of the economic benefits of urban growth have bypassed a central strated by a comprehensive economic
tourism in Hoi An into heritage conservation and community area where the street pattern, social appraisal of the market and non-market
development, demonstrate ways in which cultural heritage fabric and traditional activities have re- benefits and costs generated by alternative
safeguarding can contribute to sustainable development. mained unchanged, often for centuries. urban development projects. Secondly,
In such cases, modernization and urban these historic cores are usually concen-
Since 1999, Hoi An has experienced rapid tourism develop- expansion have occurred elsewhere, so trations of local creative industries that
ment, generated by the Strategic Policy for Tourism in Hoi that the historic core comprises a more supply cultural goods and services both
An as part of the country’s Master Plan on tourism develop- or less homogeneous agglomeration of to the resident population and to visitors,
ment, which saw tourist numbers to the city swell from both tangible and intangible cultural her- including tourists. Rehabilitation of the
160,000 in 1999 to over 1.5 million today. Local communities itage. But these historic cores often core provides a stimulus to these indus-
are the main actors in tourism services, which account for present difficult problems for urban plan- tries, generating incomes and employment
64% of the municipal revenue. Of the revenue brought by ners, especially when the city’s develop- for local people and businesses.
the sale of visitor entry tickets, 75% is reinvested into ment strategy is one of increasing inner-
heritage conservation and promotion activities, and the re- city housing densities and expanding Finally, cultural capital assets, both tangible
maining 25% is allocated to ensuring the quality of services large-scale commercial investment. In and intangible, are important in main-
provided by the Tourist Guide Office. By 2006, the number these circumstances, the most practical taining the social and cultural fabric of
of people employed in the tourism and services sector had and cost-effective development path the community. It is well established that
might appear to be to relocate the resi- social cohesion, community engagement
increased to over 10,000. Municipal statistics indicate that
dents of the core, demolish the buildings and the development of social capital
the number of poor and low-income households dropped
and replace them with modern structures. are greatly enhanced in urban environ-
substantially over the past decade. Additionally, improved ments that are of a human scale, that re-
living conditions and infrastructure, such as the establishment However, an alternative to demolition is flect traditional cultural values, and that
of a systematized waste collection service in 2003, have adaptive reuse. It may be possible, for encourage creative participation amongst
contributed to boosting the quality of life. example, to upgrade infrastructure in the the local population.
historic core, rehabilitate the building
From 1997 to 2007 fundraising initiatives, public investment, stock and improve service provision to In the contemporary world, the concept
public-private partnerships, foreign donations and interest- local businesses and households, such of sustainable development provides a
free loans contributed to almost US$5.9 million to restore that the economic, social and cultural guiding framework within which to for-
168 government-owned heritage buildings. Simultaneously, life of the city is enhanced. A number of mulate strategies to improve the welfare
over 1,000 privately-owned buildings were restored by studies have shown that the welfare of of human civilization. Investment in her-
local owners. Despite the increasing socio-economic devel- the community can be greatly increased itage rehabilitation in the historic cores
opment of Hoi An, challenges are still present in the form of by retaining the historic urban environment of towns and cities can be interpreted as
tourism pressures and the need to ensure the sustainability in the core, conserving the heritage, and a process linking the economic, social
of heritage conservation efforts. Better strategies for equal promoting the sense of community cultural and cultural development of the urban
tourism revenue distribution amongst the local communities identity that heritage can generate. complex in a manner consistent with
are required, and there is still an imperative need to closely sustainability principles. Many historic
monitor the impacts of mass tourism on the identity and in- Why might such an adaptive reuse strategy cities around the world have followed
be preferred over demolition and rede- this sort of development path, with sig-
tegrity of Hoi An.
velopment? Firstly, adaptive reuse may nificant payoff to current and future gen-
Source: WHITR-AP, report for Study Area 6 turn out to be the most attractive propo- erations of their citizens.
233
social, economic). The prominent ‘historic urban landscape

Box 10
approach’ suggests that ‘urban areas be understood as the

INVESTING IN HISTORIC CITIES AND CULTURAL
HERITAGE FOR SUSTAINABLE DEVELOPMENT2 result of a historic layering of cultural and natural values
and attributes, extending beyond the notion of historic
How can heritage investment be financed? centre or ensemble to include the broader urban context
Development is by nature a joint public and private effort. Besides and its geographical setting’ (UNESCO, 2011).
traditional heritage investment entirely driven by public funds In financial terms, the historic urban landscape approach
(grants, loans or incentives), there are other approaches blending implies that cultural values are connected to environ-
public and private financing. It is clear that, given the public good mental, social and economic values, and financial
characteristics of heritage assets, historic city cores, and of under- outcomes are considered more comprehensively, instead
utilized land of heritage value, the economic justification for public of being identified as the result of a single cultural activity,
sector investment is well-established. However, it is unreasonable monument or investment. despite the fact that some
to expect the public sector to be the sole investor. On the other financial benefits and costs could be identified for iconic
hand, the private sector alone is likely to provide suboptimal rede- monuments, exhibitions or artistic performances, true
velopment and under-provision of investment due to the presence financial returns from private or public investment in
of risks and externalities, sometimes due to coordination problems urban cultural projects are connected to many different
among private agents. The solution is to have a combination of pub- outcomes on behalf of many different cultural stakehold-
lic and private investment, with a balance between the two, varying ers. In urban sustainable contexts, cultural financial
depending on the project scheme and context. Four financial models assessment is to be taken in a ‘macro’ perspective.
have been applied successfully:
CHINA
CASE STUDY 111 PAKISTAN
1. Public-private partnerships. There are three types of public- Delhi (India)

NEPAL BHUTAN
private partnership (PPP) contracts used in projects dealing with Public-private partnership BANGLA
historic city cores and underutilized land of heritage value: rehabil- INDIA
drives heritage revitalization
itate, operate and transfer (ROT); build, rehabilitate, operate and
transfer (BROT); and rehabilitate, lease and transfer (RLT). In most Located in the heart of New Delhi, the
cases, these projects are implemented through a special purpose Nizamuddin heritage precinct includes
vehicle (SPV), which is typically a consortium of financial institutions the Hazrat Nizamuddin Basti area,
and private companies responsible for all PPP activities, including Sunder Nursery and Humayun’s Tomb – the latter of which
the coordination of financing and service delivery. was designated a UNESCO World Heritage property in 1993.
The restoration of this historic district was launched in 2007
2. Land value finance mechanisms. The basic approach of land by the Aga Khan Trust for Culture (AKTC), as part of a pub-
lic-private partnership with the Archaeological Survey of
value finance (LVF), also called land value capture finance, is to
India, the Central Public Works Department, the Municipal
recover the capital cost of the investment by capturing some or all Corporation of Delhi, and the Aga Khan Foundation. The
of the increments in land value increases resulting from the invest- conservation of Humayun’s Tomb was completed using the
ment. The increases in land value may be captured directly or indi- traditional skills of master craftspeople, stone masons and
rectly through their conversion into public revenues as fees, taxes, plasterers. In total, 200,000 staff-days of work were required
exactions, or other fiscal means. to complete the project. Following consultation with the
local community, the AKTC also revitalized the Hazrat Niza-
3. Urban development funds. There has been a significant rise in muddin Basti’s infrastructure, retrofitted its housing, ex-
the number of urban development funds (UDFs). These funds have panded access to education (building schools and a career
provided the vehicles for a range of investors to gain exposure to development centre, whilst also training heritage guides),
improved access to health and sanitation with a new pathol-
real estate markets by committing incremental investment. The
ogy laboratory and toilets, and lauched heritage awareness
funds focus on all forms of urban investment; they operate in diverse programmes.
geographic areas and have different maturity dates that offer con-
siderable choice to investors. The works resulted in the conservation of over 30 monu-
ments, the creation of a 69 ha city park in the Sundar Nurs-
4. Impact investment funds. In recent years, a new form of in- ery - Batashewala Complex, and significant improvements
vestment, known as impact investment funds, has emerged in the to the quality of life for the residents of Hazrat Nizamuddin
market. The impact investment funds are designed as a socially Basti. Overall, the case of Humayun’s Tomb, the Sunder
responsible investment not driven exclusively by profit and generally Nursery and Hazrat Nizamuddin Basti reveals the efficacy of
targeted towards addressing heritage, environmental and social a well-designed public-private partnership for heritage
preservation, civil society engagement in urban develop-
issues. Impact investment is defined as actively placing capital in
ment, and highlights the ways in which the preservation of
businesses and funds that generate social or environmental good heritage sites can serve as catalysts for the revitalization of
and a range of returns to the investor. historic districts.
Source: Srishti Institute of Art, Design and Technology, report for Study Area 5
2
Adapted from: Licciardi and Amirtahmasebi (2012)
234
12
C H A P T E R
Hong Kong (China)
© Hervé Casterman
and development, so that World Heritage properties can

be protected through appropriate activities contributing
to the social and economic development and the quality of
life of our communities’ (UNESCO, 2015a). In ‘System of
Cities, Harnessing Urbanization for Growth and Poverty
Alleviation’, the World Bank emphasizes how ‘cultural
heritage assets promote local economic development’
(World Bank, 2009).
CONCLUSION
The macro perspective takes into consideration SdG The role of public authorities remains crucial in addressing
Goal 11, and in particular its target 11.4. The macro failures in cultural markets, but also in the financing of such
perspective is enhanced by the connection between this markets. Hence, policy-makers should ‘balance efficient
target and other targets on housing (11.1), transport market mechanisms and public policies drawing on public-
systems (11.2) and green and public spaces (11.7). It also private partnership, economic incentives and investment
provides a common approach to developed and cooperation to ensure benefit sharing between all
developing countries, because of the inevitable difference stakeholders in and around World Heritage properties’
in the priority level given to culture among countries. The (UNESCO, 2015a). In addressing this, policy-makers refer
macro perspective relies on culture as an economic and to the strengthening of social values and take into
social driver for comprehensive and sustainable urban consideration broadened categories of heritage assets.
development.
Therefore, the issue of financing culture goes well beyond This much is certain: the town has no room for the
the availability of financial resources. The issue is how to citizen – no meaning at all – unless he is gathered into its
mobilize various resources (money, workforce, knowledge, meaning. As for architecture, it need do no more than
techniques, skills) into cultural projects, given the local
assist man’s homecoming.
contingencies of the place and the economy. Financing
cultural projects contributes to create qualified and decent Aldo Van Eyck, architect
jobs, stable income, welfare and liveability of a place.
Sometimes referred to as the ‘upstream model’, the
paradigm relies on cultural assets to achieve sustainable Public-private partnerships (PPPs) are to be revisited
economic development (Gustafsson and Rosvall, 2008). accordingly. This entails how both parties share
As Robert Solow, 1987 Nobel Prize winner in Economics, responsibilities towards protection and conservation of
said: ‘Nothing is more important than the identity and cultural and natural heritage, and stimulation of innovation
liveability of a place in bringing economic success’. and creativity in the urban context, and how many
resources they can contribute to achieve that goal.
In this context, several key reports have been produced. ‘Balancing risk and responsibility is an integral element of
‘Getting Cultural Heritage to Work for Europe’ sets out PPPs, so it is crucial that governments first develop the
recommendations for an innovative policy framework and policy framework and marketplace incentives needed to
agenda for cultural heritage-related research and attract private investment and ensure adequate public
innovation up to 2020, and reaffirms that culture should governance to secure the conservation outcomes’
be considered as a strategic resource for sustainable (Mcdonald and Cheong, 2015).
urban development (European Commission, 2015).
UNESCO’s ‘Policy for the Integration of a Sustainable
development Perspective into the Processes of the World
Heritage Convention’ aims to ‘ensure an appropriate and
equitable balance between conservation, sustainability
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© CHEN MIN CHUN/Shutterstock.com*
236
CONCLUSIONS and
RECOMMENDATIONS
CULTURE FOR
TRANSFORMATIVE
CHANGE IN CITIES
237
CONCLUSIONS
CULTURE FOR TRANSFORMATIVE CHANGE IN CITIES
With the adoption of the 2030 Agenda for Sustainable development by the United Nations in September 2015, the
world agreed upon an ambitious roadmap for the achievement of a sustainable future. The 2030 Agenda marks a
significant shift from traditional approaches to development cooperation and is innovative in three important ways.
First, the international development agenda has been elaborated through an open, inclusive process involving national
governments, local authorities and stakeholders, civil society organizations and international organizations. The 2030
Agenda reflects the aspirations of all nations for a better life for their citizens and is applicable across both the Global
South and the Global North.
Furthermore, based on a strong appeal from national and local stakeholders, the 2030 Agenda integrates for the first
time the role of culture, including cultural heritage and the diversity of cultural expressions, as an enabler of sustainable
development across more than half of the Sustainable development Goals (SdGs). The role of culture for quality
education, sustainable cities, environmental sustainability, inclusive societies, gender equality, food security and health
issues is now recognized.
The 2030 Agenda is also a major step forward as it addresses the issue of sustainable cities in a specific goal – SdG 11
– to ‘Make cities and human settlements inclusive, safe, resilient and sustainable’. This urgent imperative is reinforced
in seven operational targets, including to ‘Strengthen efforts to protect and safeguard the world’s cultural and natural
heritage’ (Target 11.4). Thus, the transformative role of culture in cities is fully acknowledged.
The integration of culture into the 2030 Agenda represents a paradigm shift in international development
strategies, which are applicable to all levels of governance, from the national to the local level.
UNESCO has long asserted that strategies to achieve sustainable development need to be people-centred. Here,
culture is essential, as a key driver of people’s participation, ownership and creativity. By safeguarding cultural heritage
in all its forms, both tangible and intangible; promoting the diversity of cultural expressions; ensuring access to cultural
spaces, infrastructure and institutions; and protecting the rights of all peoples to enjoy and share their culture free from
fear, people are rightly placed at the heart of local and national strategies for sustainable development.
Building on the achievements and lessons learnt from the Millennium development Goals (MdGs), the international
community has recognized that development strategies must be inclusive, and their outcomes both equitable and of
high quality. All individuals and communities – refugees and migrants, women and men, youth and the elderly – are
entitled to both contribute to and benefit from development. No one should be left behind. As an ever-renewable
resource, and a creator of social and economic value, culture is essential to equitable, inclusive development. Likewise,
quality urban environments should not be regarded as costly interventions for wealthy countries or cities. On the
contrary, when based on a cultural approach, quality urban environments enhance the identity, liveability and therefore
sustainability of cities for communities and individuals.
Integrated policy-making is the modus operandi to achieve sustainable development. As a result of the current
organization of development agencies and donors, development interventions have often been made in isolation.
However, to be effective in the long run, development policies – including urban planning policies – should integrate
culture across its sectoral components. Participatory approaches are also essential for governance systems to
effectively design, implement and monitor development strategies, ensuring the full involvement of their beneficiaries
and the complete ownership of all stakeholders. Taking into account the cultures of concerned communities and
individuals, from their cultural heritage to their cultural expressions, is crucial to this participatory approach. This is
particularly true in cities as urban governance is closely linked to people’s daily lives.
Finally, while UNESCO believes that sustainable development must be inclusive and equitable, and sustainable
development policies integrated and participatory, there is no single development path, no one-size-fits-all model. A
multiplicity of development models is needed for truly sustainable outcomes, adapted to the local context, and which
are relevant to the needs of people, taking into account their culture. Cities represent important laboratories to generate
sustainable development solutions through a diversity of innovative models.
In this context, the elaboration of this Report has been a thorough, comprehensive process, involving a variety of
stakeholders from around the world and drawing upon in-depth debates on the role of culture for sustainable urban
development.
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These debates took place:
• At the global level, where the role of culture was examined from both a geographical and historical perspective in
every region of the world;
• According to a thematic approach, based on a variety of perspectives on the role of culture in addressing key
urban challenges;
• Through a network approach, as UNESCO, in its role as an international convener of people and ideas, has
established diverse and numerous partnerships and networks that promote the role of cities as vital actors in the
global agenda.
Following this process, several key messages and recommendations have emerged based on local and regional trends
over time and informed by a thorough reflection on current challenges and opportunities. These recommendations first
address overarching strategic needs in terms of sustainable development outcomes, each of them affirming that
safeguarding and promoting culture is a precondition to achieve sustainable urban development.
THE GLOBAL SURVEY: A BASIS FOR POLICY GUIDANCE
The global survey on urban heritage conducted by UNESCO in cooperation with nine partner institutions has provided,
for the first time, a comprehensive understanding of the situation of this important sector of heritage policy. These
findings constitute, however, only the first step of a coordinated programme aimed at expanding knowledge and
understanding of urban heritage policies worldwide, and underpins UNESCO’s contribution to the New Urban Agenda
issued by Habitat III and to the achievement of Goal 11 of the 2030 Agenda.
UNESCO has been able to take stock of key trends and provide in-depth analyses of the role of culture in urban
sustainable development, as well as highlight some of the cross-sectoral issues. This effort is necessary to guide the
elaboration of urban policies by national and local governments, respectful of local needs and conditions, but at the
same time connected with the international policy frameworks agreed by governments.
An analysis of the situation of urban heritage in the world immediately shows a high degree of diversity in the different
regions. This is not only largely linked to the history of the formation of the urban systems in different areas of the world
along centuries and even millennia, but also to the variety of governance models.
In Africa, urban settlements emerged as early as the eighth century, notably in West and Central Africa inland areas
and in East African coastal areas, stimulated by the development of empires and trading routes. Urban centres such as
Timbuktu (Mali), Lalibela and Axum (Ethiopia) and Great Zimbabwe (Zimbabwe) are some of the most well-known
examples. However, many of the early cities, often built with renewable materials, have faded away. The colonial era
then fostered urban development, mostly in the coastal areas, based on segregated planning models that have marked
African cities until modern times. The conservation of urban heritage in Africa has not been a policy focus until recent
times. The rapid urbanization process of many capital cities has left little margin for the conservation of historic centres,
as seen in dakar (Senegal), Lagos (Nigeria) and Nairobi (Kenya), as well as large cities such as Johannesburg (South
Africa). However, regeneration policies can benefit from investments that value the rich and diverse cultural
backgrounds of the populations that have migrated to the cities, and can also be a tool for social cohesion and dialogue
among recently urbanized communities of different origins. Unlike many metropolises, smaller and more peripheral
urban areas have been able to conserve their heritage, which today is proving to be a fundamental asset for local
development policies, for instance in Saint-Louis (Senegal), Island of Mozambique (Mozambique), Zanzibar (United
Republic of Tanzania) or Stellenbosch (South Africa). Civil society has a growing voice and is pushing forward more
inclusive, culture-based models of urban governance.
In the Arab world, under the different Arab kingdoms and the Ottoman Empire, an important system of urban centres
developed, both along the Mediterranean coast and in the interior. For centuries these centres represented some of
the highest achievements of humanity and civilization, with cities of global importance such as damascus (Syrian Arab
Republic) or Cairo (Egypt) among others. In most countries throughout the Arab world the situation is characterized
by the presence of a specific urban form, the ‘medina’, which, due to its compactness, has not generally been the object
of massive urban transformation. The medina has maintained an important role as a centre of cultural production and
a residence for lower-income populations and urban migrants, although it has deteriorated through contemporary urban
development models. Many countries have promoted conservation and regeneration policies, largely based on
infrastructural investments and the restoration of key monuments, with initial (albeit limited) results, such as Cairo
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(Egypt), Fez (Morocco) and Jeddah (Saudi Arabia). Recurring conflicts in the region in recent decades have prevented
the development of conservation policies in areas of great need, and have in many cases caused major destruction of
urban heritage, such as in the case of Beirut (Lebanon), Baghdad (Iraq), Aleppo (Syrian Arab Republic) and Sana’a (Yemen).
In spite of these difficulties, civil society movements have developed in the region to support urban conservation and
regeneration, prompting a new awareness among governments that has been matched by the investment of
international donors.
If a rather elaborate and dense urban system can be observed today in Europe, this is also due to the legacy of ancient
civilizations that developed from the third millennium BCE. The widespread destruction of historic cities in Europe
during the Second World War has left many visible scars, but overall urban heritage in this region is well preserved and
represents today a strategic cultural and economic asset. Urban conservation as a policy originated in Europe before
other parts of the world, and this is where its basic principles and practices were first developed. While outcomes vary
from country to country, urban heritage is today a recognized subject of public policy at the national and local levels,
and very often the pivot of major regeneration policies as shown, for instance, in cases like Bordeaux (France), Barcelona
(Spain), Prague (Czech Republic) and Turin (Italy). Investment in cultural initiatives, cultural institutions and cultural
industries is seen in all countries as a necessary tool to trigger regeneration processes and attract initiatives. At the
same time, in many cases these economic transformations in cities have generated phenomena of exclusion of the original
population, and gentrification processes that have changed the social landscape and the very nature of the historic areas.
By contrast, urbanization of Eastern European and Central Asian countries did not start before the Russian Revolution
swept away the predominant feudal systems still in place at the beginning of the twentieth century. The urban system
that exists today is, with a few exceptions such as Kiev (Ukraine), Saint Petersburg, Kazan (Russian Federation) or
Samarkand (Uzbekistan), the result of rapid industrialization and urbanization that followed. Historic cities are also
facing the need to promote significant conservation and regeneration processes. In Eastern Europe and Central Asia,
culture-based regeneration strategies have been particularly instrumental in small to medium-sized cities. The main
issues are the decay of the urban cores and the limited resources available for public and private investment. However,
in recent years, many civil society movements have brought to the attention of governments the need for cultural
investment as a tool for economic regeneration and the promotion of the city’s image, with some initially positive results.
The revitalization of large, often decayed, public spaces resulting from Soviet planning principals has been a key area of
intervention that has offered a renewed opportunity to emphasize culture in planning strategies.
In South Asia, the Hindu kingdoms and later the Islamic cultures gradually created important urban centres and a dense
network of cities that still functions as the basis for modern development processes, with major cities such as Lahore
(Pakistan), delhi or Mumbai (India). In India, for instance, urban heritage is still partially preserved, albeit in a poor
condition and is severely threatened by the lack of adequate maintenance and an integrated conservation policy
framework. In a region characterized by one of the largest population densities in the world, urbanization rates are
growing rapidly. Already, the region is home to five of the world’s megacities (10 million+): delhi, Kolkata, Mumbai (India),
Karachi (Pakistan) and dhaka (Bangladesh). Throughout the region, as historic areas are very often inhabited by the
poor, conservation policies need to put the social dimension upfront and define urban regeneration models adapted to
local conditions. In this regard, policies that value local cultural expressions as economic assets have been able to attract
resources and have promoted investments in the physical assets.
In East and South-East Asia and the Pacific, the Chinese, Japanese and South-Eastern Asian civilizations established
elaborate and interconnected urban systems that became centres of manufacture and trade of global importance over
centuries, such as the Silk Road city of Xi’An (China), Kyoto (Japan) or Angkor (Cambodia). In China, historic areas have
suffered tremendous losses due to historical events and the rapid urbanization process of the country in past decades.
Throughout the region, however, a new awareness is developing of the importance of conserving urban heritage as an
asset for social and economic development and as a value to transmit to future generations. Thanks also to the role
played by international cultural policies such as the 1972 World Heritage Convention, a new awareness is developing
and an increasing number of cities are investing in heritage preservation, as can be seen, for example, in the cases of
Hangzhou (China), Hanoi (Viet Nam) or Luang Prabang (Lao People’s democratic Republic). In Australia, New Zealand
and Indonesia, particular attention has been given in recent times to the preservation of historic areas and of the heritage
of the local indigenous communities.
In North America, urban development processes originally linked to the European colonization, from the seventeenth
century on, were later boosted by the industrial revolution in the nineteenth and twentieth centuries, and largely driven
by the development of a modern network of infrastructures and transit systems. With some exceptions, such as
Charlottesville, Virginia or New Orleans, Louisiana (USA), historic areas were seldom protected, which has led to
significant losses of urban heritage, especially during the economic transformation of the countries, characterized by
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rapid urban expansion processes. However, in recent decades, a major urban heritage conservation movement has led
conservation policies in many cities, with significant results. This can be seen today from small settlements such as
Newport (USA) and Lunenburg (Canada) to larger metropolitan areas such as Montreal, Vancouver (Canada), San
Francisco and Boston (USA). In North America, a new approach to sustainable urbanism is gradually emerging, based
on the promotion of cultural values, the creative industries and a stronger environmental awareness.
In Latin America and the Caribbean, major urban civilizations developed during the pre-Columbian era. Large pre-
Hispanic cities included Tenochtitlan, subsequently Mexico City (Mexico), and Cuzco (Peru). Colonization beginning in
the sixteenth century fostered urbanization in the interior and the coastal zone. Later rapid industrialization processes,
especially in the north, shaped urban settlements and stimulated urban growth. While some important urban heritage
has been lost due to urban growth, such as in São Paulo (Brazil) or Caracas (Bolivian Republic of Venezuela), urban
heritage conservation has gained ground in past decades with significant results, visible not only in smaller settlements
like Querétaro (Mexico) and Cartagena de Indias (Colombia), but also in the historic areas of larger metropolitan areas
such as Havana (Cuba) and Quito (Ecuador). However, this has led in many cases to the expulsion of marginalized
population groups, as processes of gentrification and tourism development have taken place in the context of the
economic transformations of the cities.
The findings of the survey provide, for the first time, a global view of the present situation of urban heritage and of the
development of its conservation policies, as well as of regeneration policies based on cultural investments. They clearly
illustrate how the rich diversity of urban forms and the shape of the urban systems are linked to historical processes
and the importance of understanding the specific historical dynamics in order to develop effective urban conservation
and regeneration policies. While the policy situation is also diverse, the findings point to an increased global awareness
of the importance of urban heritage conservation.
While it is not possible – and even futile – to derive uniform conclusions from the analysis of the different regional
experiences in the area of urban heritage conservation and regeneration, some trends are clearly emerging: an increased
global awareness of the importance of historic areas for a balanced and sustainable urban development process; their
importance as assets for social cohesion and identity; the strategic role they can play as resources for sustainable urban
development processes; their economic potential, both as attractors of cultural tourism flows and as hubs for the
development of creative industries; and the key role of local authorities, together with national governments, in pushing
forward new, culture-based models of urban governance. These are significant elements that need to be understood in
their specific contexts to inform the appropriate policy choices and development frameworks.
However, policies can also make use of a comprehensive toolkit, developed in the past half century in many parts of the
world. The second part of this Report has considered the richness of this experience in deriving a set of
recommendations for policy-makers and actors involved in urban transformation.
CULTURE FOR SUSTAINABLE URBAN DEVELOPMENT: A POLICY FRAMEWORK
Based on the three policy areas highlighted in the present Report – People, Environment and Policies – which build
on the Hangzhou Outcomes adopted at the international conference on ‘Culture for Sustainable Cities’ (december
2015, Hangzhou, China), the following recommendations reflect three essential findings of the Report: 1. People-
centred cities are culture-centred spaces; 2. Culture is key to achieving a quality urban environment; and 3. Sustainable
cities need integrated policy-making that fully builds on culture.
1. People-centred cities are culture-centred spaces
1.1. Enhance the liveability of cities and safeguard their identities: The conservation and safeguarding of urban
cultural heritage in all its forms should be integrated into people-centred urban regeneration strategies to
enhance the liveability of cities while respecting their identities.
Globalization, social transformations and urban renewal initiatives based on demolition and reconstruction have often
led to the standardization of urban environments and cultural practices, whereby cities tend to lose their distinctive
cultural and historical features, their unique character, their identity. Safeguarding urban heritage and the diversity of
cultural assets is essential to enhance the liveability of cities and ensure the well-being and quality of life of their
inhabitants.
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1.2. Ensure social inclusion in cities through culture: In light of the evolving identities of cities, decision-makers
should adopt proactive policies to recognize and promote cultural diversity as an asset for social inclusion in
cities.
The rapid increase in international, intra-regional and rural-urban migration in past decades has had an unprecedented
impact on cities. Cities have become migration hubs and cultural diversity has become an inherent feature of the great
majority of urban areas. The scale of migration has sometimes led to a rise in conflicts and prejudiced attitudes,
contributing to spatial and social fragmentation. Collaborative partnerships should be encouraged to reduce inequalities,
enhance community participation in identifying and respecting the unique characteristics of the city and allow urban
residents to express their cultural identities while engaging in a meaningful cultural life.
1.3. Promote creativity and innovation in urban development through culture: Creativity and innovation,
including digital technologies, should be fostered as resources for sustainable urban development and to
improve local livelihoods.
Creativity and innovation have often been located and nurtured in urban settings, generally large metropolitan areas.
In many countries, cities are primary actors in supporting cultural and creative industries, as well as empowering them
to assume a greater economic role in the economic and social development of the city and region. Many more local
authorities can realize this potential to improve the lives and livelihoods of the residents, while also making the cities
more vibrant and liveable.
1.4. Build on culture for dialogue and peace-building initiatives: Culture should be a core component of urban
initiatives to facilitate social cohesion and mutual understanding, to counter urban violence and contribute to
peace building.
Culture represents a key resource to counter urban violence. It can also contribute to peace-building initiatives and
intercultural dialogue to facilitate mutual understanding and allow for diverse interpretations of heritage. Some
intangible cultural heritage practices which include traditional mechanisms of conflict prevention and resolution, should
be recognized and promoted. In post-crisis situations, cultural activities, spaces of memory and artistic expression can
contribute to healing the scars of the past and restoring a sense of normality. Cultural infrastructures such as museums
can offer civic spaces for intercultural dialogue and knowledge-sharing, contributing to social cohesion and mutual
understanding. They can also help build a common narrative among conflicting groups in order to ensure sustainable
peace processes.
2. Quality urban environments are shaped by culture
2.1. Foster human scale and mixed-use cities by drawing on lessons learnt from urban conservation practices:
Urban heritage offers examples of human scale and mixed-use urban ensembles that can inform sustainable
urban development models through integrating cultural and natural resources. Local authorities should review
their urban development strategies by enhancing knowledge of the historic cultural assets.
Controlling urban sprawl and working towards human scale and mix-use must be a priority in order to create more
resilient and sustainable cities. While a variety of urban models and strategies have favoured a ‘place-based’ approach
adapted to the local context, historic areas have consistently provided examples of densely populated urban settings
with low-carbon emissions, which are adapted to soft transportation. They have also served as examples of the adaptive
reuse of building stock. decision-makers should thus enhance the knowledge of historic areas to strengthen urban
planning and regeneration strategies.
2.2. Promote a liveable built and natural environment: Urban cultural and natural heritage should be safeguarded
to allow people and communities to connect with their urban environment.
Quality urban spaces inherited from the past need to be protected and preserved, while also used as a basis to improve
more recent urban spaces. Respecting the layering process of a city strengthens the overall urban identity and sense of
ownership among city residents. Natural components, including open spaces and gardens, geomorphology, hydrology
and natural features, should also be considered as core attributes of a city, which are key to the well-being of urban
residents, not only with regard to environmental concerns and diversification of urban spaces, but also in enhancing the
liveability of cities.
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2.3. Enhance the quality of public spaces through culture: The planning, design and use of public spaces should
integrate a cultural approach, based on heritage and cultural and creative activities, to foster social inclusion.
The role of public spaces has become central to the urban agenda. The quantity, quality, accessibility and connectivity
of public spaces are key components of urban regeneration. The safeguarding of historical traces, cultural practices and
cultural diversity has a direct impact on the quality of public spaces, as well as their capacity to generate social capital,
while inspiring creativity and supporting cultural diversity and pluralism. Cultural and artistic events are strong levers
for the recovery of abandoned public spaces. Traditional practices can also encourage community-based management
and maintenance of public spaces, while favouring equity and social cohesion, overcoming all forms of discrimination
and strengthening the social fabric of communities in an inclusive way.
2.4. Improve urban resilience through culture-based solutions: Local authorities should integrate heritage and
traditional knowledge into urban strategies to address environmental concerns.
Vernacular heritage, based on local materials and climate-adaptive construction methods, can encourage innovation
within contemporary low-energy architectural models. Improving urban resilience, especially to disasters and climate
change, by promoting traditional knowledge and ensuring socio-economic diversity, is a key priority. Local governments
play a lead role in the successful integration of disaster risk-reduction strategies in urban development planning processes
and daily operations. They are also integral to ensuring the availability and accessibility of risk information and should
thus build on culture to promote the participation of all sectors of society in planning and decision-making processes.
3. Sustainable cities need integrated policy-making that builds on culture
3.1. Regenerate cities and rural-urban linkages by integrating culture at the core of urban planning: Safeguarding
cultural heritage and promoting creativity should be integral to urban strategies, from planning to
implementation. The tangible and intangible cultural resources of small settlements should be safeguarded to
enhance economic and social benefits in the broader regional context.
Fragmented approaches to urban development have proven ineffective, particularly in terms of encouraging a sense of
ownership among urban residents. More holistic approaches are needed to address key urban challenges from a variety
of perspectives, ranging from infrastructure needs to cultural and natural urban features and resources, in addition to
well-being imperatives. Holistic approaches should also reinforce rural-urban linkages and foster respect for the cultural
value of small settlements and landscapes. Small urban settlements are often prone to population ageing and decline,
as well as unemployment, which encourages migration to larger cities. The preservation of these settlements as lively
areas can reduce urban sprawl and strengthen rural-urban linkages. For cities to be sustainable, urban development
must be accompanied by policies that support all urban communities to make their cultures sustainable.
3.2. Build on culture as a sustainable resource for inclusive economic and social development: decision-makers
should lever culture to contribute to local economic and social development and provide equitable benefits
for communities and individuals. National and local authorities should further develop indicators and data
collection on the impact of culture at local level to refine policy-making.
Well-preserved urban heritage, diverse cultural institutions and a vibrant creative sector can attract visitors, investors
and skilled workers and contribute to city branding strategies. Innovative practices of urban conservation, including
affordable housing solutions and economic frameworks for the development of the cultural and creative industries, can
generate sustainable jobs, particularly for women, young people and marginalized groups. Cultural tourism can act as a
catalyst to generate revenue and improve urban infrastructure and services. It is essential that it benefit local
communities in a sustainable manner by ensuring that the authenticity of urban heritage is not compromised.
Quantitative and qualitative indicators should be further developed to measure the direct and indirect impact of culture
on urban policies through tangible and intangible cultural heritage, the cultural and creative industries, museums and
cultural infrastructure, to strengthen the evidence base and refine policy-making.
3.3. Promote participatory processes through culture and enhance the role of communities in local governance:
Culture-based urban governance entails the commitment, collaboration, coordination and synergy between
different stakeholders at all levels. Stronger regional cooperation and partnership should be promoted between
cities to continue prospering together.
Community management of the built environment offers opportunities to develop essential urban functions and
facilitate access to urban services. This can also mitigate gentrification processes. The recognition of cultural practices
paves the way for community approaches to urban development, by which people can reshape their urban environment
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and improve urban services. Inclusive development and ownership are thus fostered, while inequalities in the decision-
making process are reduced. National and local legal, technical and administrative frameworks should be based on
traditional governance mechanisms where applicable, and adapted to facilitate the inclusion of culture in urban
planning tools.
3.4. Develop innovative and sustainable financial models for culture: Local authorities should ensure that
appropriate financial support is dedicated to culture as a means of contributing to economic and social
development, as well as urban liveability.
While the investments made in the safeguarding of cultural heritage and the protection and promotion of the cultural
and creative industries generate income and employment and contribute to broader development outcomes for the
benefit of all urban residents, the financing of cultural initiatives still encounters difficulties. Financial innovations should
thus be developed to support cultural initiatives, notably through fiscal benefits, micro-finance loans and credits. Public-
private partnerships should also be encouraged to trigger more private investment in public sector-led initiatives, notably
by proposing incentives to reduce risk through guarantee mechanisms and the improvement of relations between
potential investors at local and regional levels. Innovative practices in heritage conservation and management, such as
micro-credit support for economic activities and community maintenance of vernacular heritage, have been developed
and carried out in many historic areas.
CONCLUDING REMARKS
Beyond the conclusions and recommendations mentioned above, the studies and analyses of this report confirm
balanced approaches to urban development are needed to ensure its sustainability. Past approaches that either
ignored culture or addressed cultural heritage in isolation from other urban strategies have clearly shown their
limitations. The international community has made this explicit with the adoption of the 2030 Agenda for Sustainable
development. Yet an approach to heritage conservation that does not take into account pressing development needs
would present the same drawbacks as any approach that is fragmented into silos.
This report shows that the conservation of cultural heritage, the safeguarding of cultural practices and the protection
of the cultural and creative industries goes hand in hand with sustainable development. A number of national
governments, and local authorities in particular, have indeed built on the power of culture to boost the sustainable
development of cities, as demonstrated in the variety of case studies presented in the Report.
In practice, certain experiences have indicated an important evolution regarding the concept of heritage, in line with
the approach proposed by the 2011 Recommendation on the Historic Urban Landscape. In this framework, cultural
heritage is no longer considered within the perimeter of ‘old’ cities or historical areas. Heritage is no longer an object
of interest for a small élite or specialists. Today, cultural heritage belongs to the public, as demonstrated by the great
interest of citizens and policy-makers in its protection and safeguarding.
The latest global debates following the adoption of the 2030 Agenda for Sustainable development have shown that
the role of culture for sustainable urban development is manifold, ranging from promoting inclusive social and
economic development, enhancing cities’ liveability and evolving identities, to fostering a quality built and natural
environment.
The New Urban Agenda issued at Habitat III builds on the power of culture for sustainable urban development,
through the promotion of cultural heritage in all its forms, the diversity of cultural expressions, and creativity.
UNESCO is fully committed to support its implementation.
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RECOMMENdATIONS
1. People-centred cities are culture-centred spaces
1.1. Enhance the liveability of cities and safeguard their identities: The conservation and safeguarding of urban
cultural heritage in all its forms should be integrated into people-centred urban regeneration strategies to
enhance the liveability of cities while respecting their identities.
1.2. Ensure social inclusion in cities through culture: In light of the evolving identities of cities, decision-makers
should adopt proactive policies to recognize and promote cultural diversity as an asset for social inclusion in
cities.
1.3. Promote creativity and innovation in urban development through culture: Creativity and innovation,
including digital technologies, should be fostered as resources for sustainable urban development and to
improve local livelihoods.
1.4. Build on culture for dialogue and peace-building initiatives: Culture should be a core component of urban
initiatives to facilitate social cohesion and mutual understanding, to counter urban violence and contribute to
peace building.
2. Quality urban environments are shaped by culture
2.1. Foster human scale and mixed-use cities by drawing on lessons learnt from urban conservation practices:
Urban heritage offers examples of human scale and mixed-use urban ensembles that can inform sustainable
urban development models through integrating cultural and natural resources. Local authorities should review
their urban development strategies by enhancing knowledge of the historic cultural assets.
2.2. Promote a liveable built and natural environment: Urban cultural and natural heritage should be safeguarded
to allow people and communities to connect with their urban environment.
2.3. Enhance the quality of public spaces through culture: The planning, design and use of public spaces should
integrate a cultural approach, based on heritage and cultural and creative activities, to foster social inclusion.
2.4. Improve urban resilience through culture-based solutions: Local authorities should integrate heritage and
traditional knowledge into urban strategies to address environmental concerns.
3. Sustainable cities need integrated policy-making that builds on culture
3.1. Regenerate cities and rural-urban linkages by integrating culture at the core of urban planning: Safeguarding
cultural heritage and promoting creativity should be integral to urban strategies, from planning to
implementation. The tangible and intangible cultural resources of small settlements should be safeguarded to
enhance economic and social benefits in the broader regional context.
3.2. Build on culture as a sustainable resource for inclusive economic and social development: decision-makers
should lever culture to contribute to local economic and social development and provide equitable benefits for
communities and individuals. National and local authorities should further develop indicators and data
collection on the impact of culture at local level to refine policy-making.
3.3. Promote participatory processes through culture and enhance the role of communities in local governance:
Culture-based urban governance entails the commitment, collaboration, coordination and synergy between
different stakeholders at all levels. Stronger regional cooperation and partnership should be promoted between
cities to continue prospering together.
3.4. Develop innovative and sustainable financial models for culture: Local authorities should ensure that
appropriate financial support is dedicated to culture as a means of contributing to economic and social
development, as well as urban liveability.
245
B
uilding on its mandate in education, the natural sciences, the social and human
sciences, culture and communication, UNESCO’s engagement for sustainable
urban development reflects an interdisciplinary approach involving all its
programme sectors. This manifold strategy is based on the assumption that, in order
for cities to be inclusive, safe, resilient and sustainable, all aspects of urban life need
to be addressed in a coordinated manner by planners and policy-makers. UNESCO has
established networks and partnerships involving a wide range of actors from the public
and private sectors in different thematic areas, which have been widely supported and
developed by its Member States.
The Dossiers illustrate the focus and work of several of these partnerships and networks:
Dossier 1 presents UNESCO’s strategic partnerships for cities established with

international organizations, international funding institutions, foundations, the
private sector, universities, research institutions, NGOs and civil society.
Dossier 2 illustrates the relevance of World Heritage status for urban areas and
the challenges faced by World Heritage properties located in cities (including
historic centres and monuments in an urban context).
Dossier 3 presents the UNESCO Creative Cities Network (UCCN), established in

2004 and which operates in the framework of the 2005 Convention on the
Protection and Promotion of the Diversity of Cultural Expressions.
Dossier 4 concerns the International Coalition of Inclusive and Sustainable Cities

– ICCAR, launched in 2004, which aims to create a common front in the global
fight against racial discrimination.
Dossier 5 presents the Global Network of Learning Cities (GNLC), which was
launched by UNESCO in 2013 with the mission of supporting and accelerating the
practice of lifelong learning in urban contexts.
Dossier 6 refers to the Urban Biosphere Reserves, established in the framework

of the UNESCO Man and the Biosphere (MAB) Programme, which promotes the
development of societies which are sustainable and in harmony with the
biosphere.
Dossier 7 illustrates UNESCO’s actions in supporting Member States to build

capacities to manage disaster and climate risk, including in urban areas.
Dossier 8 outlines UNESCO’s work in addressing issues related to water and

human settlements, focusing on the International Hydrological Programme (IHP)
and the Megacities Alliance for Water and Climate.
246
DOSSIERS
UNESCO’S NETWORKS
FOR SUSTAINABLE
URBAN DEVELOPMENT
247
Rooftops of the Casbah, Algiers (Algeria)
© REZA/Webistan*
dOSSIER 1
UNESCO’S STRATEGIC PARTNERSHIPS FOR CITIES
Reflecting the changing face of cannot be tackled in isolation. UNESCO part of the Millennium development Goals
development, the nature of the issues has joined forces with United Nations Achievement Fund (MdG-F), involving the
that cities face today requires an bodies and other intergovernmental implementation of 18 development
integrated approach and the combined organizations to capitalize on programmes in Africa, the Arab States,
expertise of different stakeholders to complementary mandates by combining Asia, Latin America and the Caribbean, and
ensure that benefits are felt at ground expertise and resources to enhance Eastern Europe. Each of the joint projects
level. The place given to cities, their role programme implementation in the urban involved the cooperation of up to eight
in development and the challenges they setting in a number of areas. United Nations bodies, thereby
face have increasingly become central strengthening the UN system’s ability to
to UNESCO’s work, bringing new actors UNESCO has cooperated with the United ‘deliver as one’. In 2014, the Organization
to the table, and capitalizing on a broad Nations Human Settlements Programme co-led with UNFPA and UNdP the Post-
range of competences to boost (UN Habitat) on several urban initiatives– a 2015 dialogues on Culture and
sustainable development outcomes. cooperation that has only been development, a consultation process that
strengthened by a Memorandum of contributed to elaborating the 2030
Over the past 20 years since Habitat II, Understanding (MoU) signed between the Agenda for Sustainable development.
UNESCO has strengthened the role of two organizations in 2005. The MoU
partnerships across its programmatic work outlined developing research agendas and The implementation of the 2005
in education, culture, natural and social and common approaches on the role of cities in Convention on the Protection and
human sciences and communication. The fostering creativity and culture, urban Promotion of the diversity of Cultural
Organization has mobilized cooperation poverty reduction, and elaborating new Expressions has been facilitated by
with a wide network of international instruments and strategies for social and programmes that have combined the
organizations, Member States, National environmental sustainability. drawing on competences of several UN agencies,
Commissions for UNESCO, Category 2 the experience of the UNESCO World including the United Nations development
Centres, international and regional Heritage Centre in the conservation of Programme (UNdP), the United Nations
associations of cities, NGOs, the private historic urban landscapes, UN Habitat has Children Fund (UNICEF), the United
sector, specialized funding bodies, goodwill partnered in activities for the preservation Nations Industrial development
ambassadors and civil society actors to of urban heritage inscribed on the World Organization (UNIdO), the United
collaborate on urban research, Heritage List. The alliance has seen the Nations Population Fund (UNFPA), the
management, training and community further development of research studies of International Labour Organization (ILO),
participation. This portfolio has yielded UNESCO’s Management of Social the United Nations Entity for Gender
benefits in a range of areas spanning: Transformation (MOST) Programme Equality and the Empowerment of Women
conservation of historic cities, cultural focused on the urban context, such as the (UN Women), the Food and Agriculture
institutions, creative industries, disaster Small Historic Coastal Cities (SHCC) Organization of the United Nations (FAO)
risk reduction, urban water management project carried out in Latin America and in and the World Health Organization
and ecology, education, migration, the Mediterranean region, and the Euro (WHO). One such cooperation, the 2013
intercultural dialogue, peace-building and Mediterranean Network. The MOST Creative Economy Report
the media. Closer ties with cities have also Programme also works in cooperation with (UNdP/UNESCO, 2013), was the fruit of a
been forged by establishing and the Office of the High Commissioner for partnership between UNESCO and UNdP,
reinforcing cooperation at city level Human Rights (OHCHR), regional and and placed a lens on the local context,
through networks of cities in UNESCO’s international cities and local governments highlighting the integral role of cities in the
operational areas (see dossiers 2-6). associations focused on fostering creative economy.
Through an interdisciplinary approach that inclusiveness and well-being in urban
builds on the mandate of UNESCO in the environments. Many countries have progressively
fields of education, the sciences, culture included cultural aspects in their UN
and communication, UNESCO will scale up In recent decades, culture’s role in the development Assistance Framework
its efforts to ensure responsiveness, development discourse has gained (UNdAF), linking culture with social and
effectively tackle new development increasing recognition. Since the Outcome economic development, human rights and
challenges, and accelerate efforts in document of the 2010 Millennium governance.
achieving the Sustainable development development Goals (MdG) Summit,1
Goals (SdGs). culture’s role as an engine for development The MoU signed between UNESCO and
has been reiterated in five United Nations the United Nations World Tourism
INTERNATIONAL General Assembly (UNGA) resolutions on Organization (UNWTO) in 2013 built on
ORGANIZATIONS culture and development.2 UNESCO was the existing cooperation between the two
designated as Convener of the Thematic organizations and emphasized a
The often interwoven global challenges of Window on Culture and development as sustainable approach to heritage
the twenty-first century demand a management and tourism in the context of
renewed multilateralism for effective the 1972 Convention Concerning the
A/RES/65/1.
collective responses to issues that often Protection of the World Cultural and
1
2
A/RES/70/214, A/RES/69/230, A/RES/68/223,
are not specific to one country, and thus A/RES/66/208 and A/RES/65/166. Natural Heritage (World Heritage
248
Sukiyabashi intersection, Tokyo (Japan)

© mk1221/ Shutterstock.com*
Convention). The partnership of UNWTO Convention for the Protection of Cultural for Sustainable development (ESd) (2005-
supports a broad set of stakeholders in Property in the Event of Armed Conflict 2014), during which it worked with a wide
implementing the World Heritage and and the International Criminal Court (ICC), range of partners to mainstream
Sustainable Tourism Programme, including which is demonstrated in the ongoing sustainable development in formal and
States Parties, the tourism sector, Advisory investigation over the destruction of the informal learning, and enhance education’s
Bodies and UNESCO Category 2 mausoleums in Timbuktu (Mali) in 2012. role in the promotion of knowledge and the
Institutes and Centres. The partnership established in 2016 empowerment of urban populations in
between UNESCO and the International shaping sustainable development.
The heightened threat to cultural property Committee of the Red Cross (ICRC)
and cultural identities in recent years has promises to further strengthen efforts in UNESCO’s work has broadened the
urgently called for more effective the application of international law in perspective of the role and purpose of
cooperation between cultural, fragile conflict areas and to better harness education through recognizing its
humanitarian and security actors. This has the ties between cultural, humanitarian contribution to promoting just, peaceful,
been recognized through numerous and security dimensions. tolerant and inclusive societies. Global
statements and declarations, United citizenship was included as one of the three
Nations General Assembly resolutions An agreement signed between UNESCO priorities of the Global Education First
and, more recently, United Nations and the United Nations Institute for Initiative (GEFI), launched by the United
Security Council resolution 2199 in 2015.3 Training and Research (UNITAR) in 2015 Nations Secretary-General in 2012.
UNESCO has partnered with international has also opened up new possibilities for UNESCO’s programme on Global
organizations such as INTERPOL, the heritage damage assessment in urban areas Citizenship Education (GCEd) is directly
World Customs Organization, the United that may have limited access due to conflict related to the civic, social and political
Nations Office on drugs and Crime or natural disasters. Geospatial technologies socialization function of education. It
(UNOdC), the International Institute for developed by UNITAR’s Operational Satellite promotes knowledge, skills and values for
the Unification of Private Law (UNIdROIT) Applications Programme (UNOSAT) will the participation of citizens in, and their
together with international NGOs, enable better assessment and monitoring contribution to, dimensions of societal
councils and associations, and national and of cultural and natural heritage sites. The development linking the local and global
local police and customs authorities in technology has already provided insights levels. To better equip people with the
combatting looting and the illegal into the extent of damage caused to urban competences needed for an increasingly
trafficking of cultural goods under the cultural heritage in the Old City of Aleppo, interrelated and interconnected world,
provisions of the 1970 Convention on the damascus, Crac des Chevaliers, Raqqa and UNESCO launched in 2013 the Global
Means of Prohibiting and Preventing the Palmyra (Syrian Arab Republic). Alliance for Partnerships of Media and
Illicit Import, Export and Transfer of Information Literacy (GAPMIL). This joint
Ownership of Cultural Property. In Within the United Nations system, initiative partners UNESCO with the
accordance with the 1998 Rome Statute of UNESCO has been the lead agency of United Nations Alliance of Civilizations
the International Criminal Court, United Nations decades, working closely (UNAOC), UNICEF, the Open Society
deliberate attacks on buildings dedicated with the United Nations department of Foundation (OSF), the International
to the practice of faith, education, art, Economic and Social Affairs (UN dESA). Research and Exchanges Board (IREX), the
science, or historic monuments, may be The UN decade for the Rapprochement of European Commission and other
considered war crimes.4 In this regard, Cultures (2013-2022), federates a broad stakeholders to develop competencies in
UNESCO has engaged stronger range of partners both within and outside the ethical use of media, information and
cooperation in the context of the 1954 the UN system to spearhead cooperation ICTs, and empowering citizens, including
at global, regional, national and local levels children and youth, to better assess and
in promoting respect for cultural diversity, navigate the media landscape.
3
S/RES/2199.
4
Art. 8, Rome Statute of the International Criminal peaceful societies and mutual respect
Court, among peoples. UNESCO was also the lead As part of the United Nations Secretary-
http://legal.un.org/icc/statute/99_corr/cstatute.htm
agency for the UN decade for Education General’s Plan of Action on Violent
249
Extremism, launched in January 2016, solid national policy implementation. As echoed in the central theme of the 40th
UNESCO is building on its mandate and part of its work to promote intercultural anniversary of the World Heritage
existing activities, notably through: (i) dialogue, UNESCO has applied an Convention in 2012: ‘World Heritage and
education, skills development and interdisciplinary perspective by partnering Sustainable development: the role of local
employment facilitation; (ii) empowerment with the African Union (AU), the Arab communities’.
of youth; (iii) strategic communications, the League Educational, Cultural and Scientific
internet and social media; and (iv) gender Organization (ALECSO), the Association of INTERNATIONAL FUNDING
equality and empowering women. In this Southeast Asian Nations (ASEAN), the INSTITUTIONS (IFI)
regard, UNESCO is working in close Commonwealth of Nations, the Council of
consultation with the United Nations Europe (CoE), the Islamic Educational, The World Bank (WB) has been
Counter-Terrorism Implementation Task Scientific and Cultural Organization continuously involved in urban heritage
Force (CTITF) in developing and (ISESCO), the King Abdullah Bin Abdulaziz preservation and cultural policies for at
implementing its activities, identifying International Centre for Interreligious and least the past 30 years. In the 1990s, the
opportunities for collaboration within the Intercultural dialogue (KAICIId), World Bank launched several pilot
United Nations system and non- International Organisation of La development projects for historic cities in
governmental organizations. Francophonie (IOF), and the Organization developing countries, which have been
of Ibero-American States (OIE). supported by research, data gathering and
Coastal cities, being particularly vulnerable policy proposals. In total, over 200 projects
to global climate change, climate variability UNESCO has worked together with the with cultural content have become part of
and sea-level rise, are a key concern of European Union in the context of several the World Bank portfolio in all regions of
UNESCO. To address environmental targeted programmes that have generated the world, including sites inscribed on the
threats to these urban areas, the benefits for urban communities. Net-Med World Heritage List, mainly in the Middle
Organization partners with a range of is one such example, a youth-focused, East and North Africa, Central and Eastern
actors in addressing sustainable three-year project (2014-2017) Asia. Notable examples include climate
urbanization in coastal cities to help build implemented by UNESCO and funded by change studies for World Heritage cities,
solid adaptation strategies to mitigate the the European Union. It operates within seismic risk preparedness in Istanbul
impacts of sea-level rise, as well as develop 10 countries along the eastern and (Turkey), and the Resilient Cities
appropriate disaster preparedness and western basins of the Mediterranean Sea Programme developed in conjunction with
risk-reduction mechanisms. The newly- and works with decision-makers, media the Cities Alliance. The World Bank has
established International Platform for professionals, citizen journalists and also adopted a ‘Physical Cultural
Earthquake Early Warning Systems bloggers to provide the necessary skills Resources’ safeguarding policy to prevent
(IP-EEWS) is a pioneering initiative within and tools to encourage young people to be and mitigate damage to cultural heritage
the United Nations that links the tsunami active citizens and take part in decision- from large infrastructure projects. In 2011,
and landslide work of UNESCO. In 2015, making in their cities and beyond. The UNESCO and the World Bank signed a
the Intergovernmental Oceanographic European Union has also been an MoU to formalize their cooperation in
Commission of UNESCO (IOC-UNESCO) important partner in establishing the culture and development, including the
focused its programmatic and outreach UNESCO Observatory of Syrian Cultural conservation and rehabilitation of historic
work around climate change and COP 21, Heritage, and in MedLiHer cities. In Haiti, the Cultural Heritage
mobilizing scientific and civil society (Mediterranean Living Heritage, 2009- Preservation and Tourism Sector Support
institutions around ocean and climate 2013) an EU-funded initiative in the Arab Project, launched in 2014 by UNESCO and
science and awareness-raising. The region that was implemented through the World Bank, aims to boost the
UNESCO Climate Change Initiative joins UNESCO in partnership with Egyptian, economic benefits of tourism for local
UNESCO’s work with other United Lebanese, Syrian and Jordanian communities through improving the
Nations bodies to support Member States stakeholders, National Commissions for access, conservation and management of
in mitigating and adapting to climate UNESCO, and the NGO World Cultures the World Heritage property, National
change, such as through monitoring Institute. Historic Park - Citadel, Sans Souci,
impacts on World Heritage properties and Ramiers, and the historic centre of Cap
biosphere reserves. These efforts The UNESCO General Conference at its Haitien.
complement UNESCO’s ongoing 32nd session in 2003 encouraged
cooperation with Small Island developing ‘cooperation with associations of mayors, In the area of heritage conservation in the
States (SIdS), comprising 39 Member cities and local body authorities, which European Union, the European Investment
States and 8 Associate Members, to help have an increasingly important role to play Bank (EIB) backs initiatives that foster
build local capacities and networks, in sustainable community development’ European identity through regional and
strengthen traditional knowledge and (UNESCO, 2004). In 2005, UNESCO tourism development. The EIB cooperates
skills, and promote culturally-sensitive and signed a MoU with the United Cities and in the analysis of European UNESCO
scientifically-sound actions to ensure the Local Governments (UCLG), to reinforce World Heritage properties to identify
resilience of communities. the Organization’s partnership with civil specific cultural goods and activities that
society and its elected representatives. could be sustained through targeted
Partnerships with intergovernmental The implementation of the World Heritage financial mechanisms or self-sustaining
organizations have also been instrumental Convention in recent years has revolving instruments. The EIB also
in supporting UNESCO’s work towards demonstrated greater emphasis on the partners with the Council of Europe Bank
promoting tolerance, mutual connection between conservation and (CEB) and the non-governmental
understanding and social cohesion in communities, with the World Heritage organization Europa Nostra in identifying
communities. These organizations have Committee in 2007 committing to priority sites in danger of neglect or
served to provide resources and access ‘enhance the role of communities in the destruction. Over the past five years, the
that can help guide approaches in implementation of the World Heritage EIB has channelled nearly EUR 28 billion
vulnerable urban settings or that may lack Convention’ (UNESCO, 2007), which was (US$31.5 billion) towards the goal of a
250
better quality of life in urban environments

across the European Union, of which
around EUR 13 billion (US$14.6 billion)
has specifically been earmarked for urban
renewal and regeneration (including
housing), and some EUR 15 billion
(US$16.9 billion) for urban transportation
projects.
For the past 40 years, the Inter-American

development Bank (IdB) has been
involved in urban heritage preservation
and historic centre revitalization through
financing a number of national and regional
programmes, including the revitalization of
the World Heritage property Historic Dubrovnik (Croatia)
Centre of Quito (Ecuador), and the
© biggunsband/ Shutterstock.com*
Monumenta Programme that regenerated

Governments and the Ford Foundation. In the implementation of the UNESCO
27 historic centres in Brazil. To date, almost
its work in culture, UNESCO has biosphere reserve concept developed
50 historic cities in Latin America and the
partnered with the Beijing-based Wanda under the umbrella of the UNESCO Man
Caribbean have benefited from loans and
Group, which in 2010 began investing and the Biosphere (MAB) Programme.
technical cooperation from the IdB. The
heavily in cultural development and set up
IdB employs a holistic approach to
safeguarding cultural heritage that not
a Culture Industry Group that has since UNIVERSITIES AND
only aims to improve quality of life in
become China’s largest private cultural RESEARCH INSTITUTIONS
enterprise. To further conservation
historic centres but also to generate
activities in urban areas, the UNESCO Universities and research institutions
benefits for the entire city. This approach
World Heritage Centre has cooperated underpin the Organization’s operational
integrates the revitalization of historic
with a range of private partners ranging work and serve as a valuable source of
centres as a component of regional
from small-scale companies such as the evidence-based research to support
development, and recognizes the role of
Prague-based Czech Architecture Week to policy-making. In its fields of competence,
heritage in socio-economic development,
large-scale companies like the Google UNESCO has developed cooperation with
strengthening cultural identity,
Cultural Institute. institutions from all over the world, which
knowledge-sharing and heritage
have served as essential partners in
valorization among communities. These
The Aga Khan Trust for Culture (AKTC), a fostering North-South and South-South
activities have been accompanied by an
private philanthropic foundation, is the cooperation and in generating and
intensive production of information
cultural arm of the Aga Khan development exchanging knowledge, capacity-building,
material and operational manuals aimed to
Network (AKdN) and supports social and and providing technical assistance.
disseminate and replicate the experiences
cultural development activities around the UNESCO counts 94 participating
conducted.
world, mostly in Asia and Africa. UNESCO institutions within its designated Category
has partnered with the Aga Khan Historic 2 Institutes and Centres, which are
FOUNDATIONS AND
Cities Programme in the restoration of specialized in one of UNESCO’s fields of
THE PRIVATE SECTOR
several UNESCO World Heritage competence. The Organization’s
properties, including Kabul (Afghanistan), UNITWIN/UNESCO Chairs Programme
The idea that development is a matter
Cairo (Egypt) and Zanzibar (United comprises networks of higher education
solely dependent on governments has
Republic of Tanzania). The Getty and research institutions that contribute
been steadily transformed by the
Conservation Institute (GCI) has also to the execution of UNESCO’s strategies
recognition of the role of the private sector
partnered with UNESCO on several and programmes through research,
and civil society. UNESCO partners with
culture-based activities, for instance, knowledge-sharing and advanced training.
small, medium and large-sized business
providing training in disaster-risk Today, the Programme counts the official
enterprises, philanthropic and corporate
reduction. participation of over 700 institutions in
foundations, financial institutions and
128 countries. These networks serve as
private individuals to support its
The Biosphere Integrated Rural interlocutors between academia, civil
programme objectives for sustainable
Urbanization Programme (BIRUP) is a society and local communities, and
urban development.
partnership between UNESCO and the mobilize institutions and networks at
private sector CHIC Group, Chongquing national and regional levels. As part of this
UNESCO’s 2005 Convention enshrines
City and the Ba’nan district (China). The Report, UNESCO worked in cooperation
the principle of public-private partnerships
Programme promotes green economies with several UNESCO Category 2 Centres
(PPPs), in recognition of the cultural
based on integrated rural land and UNESCO Chairs, including the World
industries as major drivers of the economic
consolidation with new agricultural Heritage Training and Research Institute
and cultural vitality of cities. The UNESCO
projects, training of farmers and expansion for Asia and the Pacific (WHITR-AP),
Global Alliance for Cultural diversity was
of urbanized rural villages. The approach Shanghai (China), the Srishti Institute of
created to expand the potential of
nurtures a city and regional approach, by Art, design and Technology, Bangalore
partnerships for advancing cultural
establishing coordination between rural- (India), the University IUAV of Venice,
industries, particularly in developing
urban areas to minimize poverty, improve Venice (Italy), and the Bezalel Academy of
countries. From 2002-2007 the Global
environment and promote human well- Arts and design, Jerusalem.
Alliance leveraged PPPs to implement 50
being, and builds on the experiences from
projects funded by the Spanish and Finnish
251
A further example of this cooperation is

demonstrated in UNESCO’s work to
address urban water issues. The clear
decline in available freshwater, sanitation
and ensuring resilient water solutions are a
particular challenge in urban and peri-
urban areas. The International
Hydrological Programme (IHP)
educational and research network
comprising UNESCO-IHE, the UNESCO
Category 2 Centres and the UNESCO
Chairs related to water are key institutions
for the implementation of UNESCO’s work
in addressing urban water issues.
Angkor Wat, Siem Reap (Cambodia)
© Vixit/Shutterstock.com*
Currently, three UNESCO Category 2
Centres are concerned with urban water
urban violence, particularly among youth (ISOCARP), the International Association
management issues: the International
and gangs, and promotes peace-building of Impact Assessment (IAIA), and the
Research and Training Centre on Urban
through working closely with urban Organization of World Heritage Cities
drainage (IRTCUd) in Belgrade (Serbia),
communities worldwide, including (OWHC). ICOMOS has also spearheaded
established in 1987; the Regional Centre
educators, civil and religious leaders, several initiatives through its Task Force on
on Urban Water Management (RCUWM)
entrepreneurs, local police and youth. Cultural Heritage and Sustainable
in Tehran (Islamic Republic of Iran),
development to promote tangible and
established in 2002; and the Regional
NGOS AND CIVIL SOCIETY intangible cultural heritage as a vital part of
Centre on Urban Water Management for
social development and sustainability.
Latin America and the Caribbean
Non-governmental organizations (NGOs)
(CINARA) in Cali (Colombia), established in
are an important stakeholder in UNESCO Similarly, national and local NGOs are
2007. The IHP’s Urban Water
programmes, both in the Organization’s important partners in the implementation
Management Programme (UWMP)
normative work and as mediators and of the 2003 Convention for the
targets approaches, tools and guidelines to
‘bridges’ between various actors. At all Safeguarding of the Intangible Cultural
support cities in formulating more
levels and across the fields of UNESCO’s Heritage. The Convention specifically
effective urban water management
competence, the Organization partners encourages States Parties to work with
strategies.
with NGOs and civil society organizations ‘communities, groups and relevant non-
in recognition of their role in strengthening governmental organizations’ in its
As part of the UNESCO World Heritage
civil engagement and in building inventorying efforts (UNESCO, 2003), and
Centre’s conservation work in earthen
democratic and equitable governance. its Operational directives emphasize the
architecture, the Organization has
participation of NGOs at the national level
partnered for more than 20 years with
As Advisory Bodies to the 1972 World in identifying and defining intangible
CRAterre (International Centre on
Heritage Convention, the international, cultural heritage and appropriate
Earthen Architecture), part of the School of
non-governmental organizations safeguarding measures (UNESCO, 2016).
Architecture of Grenoble (France), and a
International Council on Monuments and
UNESCO Chair. Earthen architecture
Sites (ICOMOS) and the International The building blocks of UNESCO’s work
serves as the habitat for up to one-third of
Union for Conservation of Nature (IUCN), with civil society actors are through
the world’s population today, and
together with the intergovernmental body partnerships, capacity-building and
comprises more than 150 properties
ICCROM (International Centre for the advocacy. From an advocacy perspective,
inscribed on the World Heritage List.5
Study of the Preservation and Restoration one such initiative is the Unite4Heritage
Regional institutions are also key partners
of Cultural Property), provide evaluations coalition, which was launched in 2015 in
in the World Heritage Programme on
of cultural, natural and mixed properties response to the unprecedented attacks on
Earthen Architecture (WHEAP), including
proposed for inscription on the World heritage. It aims to mobilize and engage
the School of African Heritage (EPA,
Heritage List as well as heritage training. stakeholders in the face of increased
Benin), the Centre for Heritage
The Advisory Bodies have contributed to attacks on culture during conflict and calls
development in Africa (CHdA, Kenya), and
UNESCO’s work in cities and urban on actors from civil society and decision-
the Centre for Conservation and
heritage, such as through the World makers to stand up against extremism and
Restoration of Atlas and Subatlas
Heritage Cities Programme. They have radicalization and counter propaganda
Architectural Heritage (CERKAS, Morocco).
also supported drafting processes of the promoting hatred, sectarian agendas and
Recommendation on the Historic Urban extreme violence.
In 2011, the UNESCO General
Landscape, adopted in 2011, together with
Conference designated the International
the inputs of the IdB, UN-HABITAT, AKTC,
Institute for Peace (IIP) as an Institute
GCI, the World Bank, the Organisation for
under the auspices of UNESCO. Based at
Economic Co-operation and development
Rutgers University, United States of
(OECd), the International Union of
America, the IIP was co-founded by
Architects (UIA), the International
UNESCO Goodwill Ambassador for Peace
Federation of Landscape Architects (IFLA),
and Reconciliation, Forest Whitaker. The
the International Federation for Housing
IIP has a particular focus on addressing
and Planning (IFHP), the International
Society of City and Regional Planners
5
252
dOSSIER 2
WORLD HERITAGE AND CITIES
WHAT IS URBAN WORLD Heritage List, representing more than 53% beyond the World Heritage context. It has
HERITAGE? of the inscribed cultural properties. Among become the standard framework for the
these, 241 are listed as historic cities, while implementation of the World Heritage
To promote the protection and 189 are found in an urban context.1 Cities Programme.
transmission of cultural and natural
heritage that is considered of Outstanding Given the large and growing number of
Universal Value (OUV) and importance to urban heritage properties and urban World Heritage Cities Programme2
humankind, the UNESCO General development challenges, urban World
Conference adopted in 1972 the Heritage properties reflect both the The World Heritage Cities Programme was
Convention Concerning the Protection of benefits and threats of development in launched in 2001 in response to the chal-
the World Cultural and Natural Heritage, historic urban contexts. In fact, threats to lenges faced by historic urban areas, par-
also known as the World Heritage urban heritage and to properties located in ticularly by developing a theoretical frame-
an urban context are predominant in State
work for urban heritage conservation and
Convention. The Convention focuses not providing technical assistance to States
only on the conservation of heritage but of Conservation reporting to the World Parties for the implementation of new ap-
also on its management and the role and Heritage Committee. proaches and methodologies. As a result,
function of heritage, calling on States several tools, instruments and field activities
Parties to ‘adopt a general policy which have been approved by the World Heritage
aims to give the cultural and natural Threats to urban World Heritage Committee and implemented by the World
heritage a function in the life of the Heritage Centre over the last years. One of
community and to integrate the protection Urban World Heritage properties are faced the most recent instruments to result from
of that heritage into comprehensive with constant challenges and development this work is the 2011 Recommendation on
planning programmes’ (UNESCO, 1972). pressures, including infrastructure develop- the Historic Urban Landscape, which has
ment, adaptation to climate change and helped to shift the focus from conservation
other environmental changes, natural dis- of the urban environment to sustainable
Through one of its decision-making bodies, asters, modernization projects, social changes urban development. The Recommendation
the World Heritage Committee, and based and tourism pressure. The impacts of these defines the Historic Urban Landscape as
on 10 criteria (UNESCO, 2015b), the pressures can be tangible, visual, but also ‘the urban area understood as the result of
Convention allows for the designation of functional and socio-economic. a historic layering of cultural and natural
tangible cultural and natural properties values and attributes, extending beyond
proposed by its signatory States Parties as Due to their worldwide visibility and at- the notion of “historic centre” or “ensemble”
World Heritage, and includes them on the tractiveness to tourists, World Heritage to include the broader urban context and
World Heritage List. They represent some properties are at risk of becoming victims its geographical setting’ (UNESCO, 2011).
of the world’s most outstanding heritage of their own success. They often draw large
properties, to be protected as cultural
visitor numbers, which can spark changes
in the use and value of their surroundings.
beacons for people of today and tomorrow.
Once inscribed on the List, these
This can result in speculation, gentrification WHERE IS URBAN WORLD
properties are protected through clearly
and the marginalization of the local urban HERITAGE?
population. World Heritage status thus has
defined obligations for States Parties, as to be closely monitored to allow short-term
well as through monitoring mechanisms at benefits to become sustainable. Urban heritage can be found in all regions
the international level. of the world, with large clusters being
located in Europe, Latin America and Asia.
The definition of World Heritage, and the The success and visibility of World The Arab States also feature a high
notion of urban heritage in particular, has Heritage, which carries a high socio- percentage of cities compared to the
evolved over time, and the inscribed cultural, economic and political overall number of World Heritage
properties reflect this evolution. A detailed importance, has made the World Heritage properties in the region. North America,
analysis of each property’s OUV reveals Convention a powerful tool for highlighting Africa and the Pacific count a significantly
the urban dimension of World Heritage development pressures and their impacts lower number of cities among their
and demonstrates the diverse range of on traditional urban areas, as well as for respective World Heritage properties, for
urban heritage found on the World identifying sustainable solutions to the various reasons.
Heritage List. In this context, urban World challenges of modernization and urban
Heritage is divided into two types of conservation. Moreover, the 2011 A brief review of the history of the World
properties: (1) contiguous urban areas Recommendation on the Historic Urban Heritage List reveals that historic cities and
inscribed as historical centres; and (2) Landscape (HUL) is an important tool for urban centres have been inscribed since
single or serial monuments linked to urban strengthening UNESCO’s action in the the establishment of the Convention. The
contexts. field of urban heritage conservation, City of Quito (Ecuador) and the Historic
Centre of Krakow (Poland) were inscribed
Today, urban heritage is the most 1
See: http://whc.unesco.org/archive/2016/whc16-
represented category on the World 40com-5d-en.pdf
2
See: http://whc.unesco.org/en/cities
253
Palau de la Música Catalana, Barcelona (Spain)

© Rodrigo Garrido/Shutterstock.com*
on the World Heritage List in 1978, HOW DOES WORLD cannot be de-localized) and green ‘by
followed by the Ancient City of damascus HERITAGE STATUS design’ since they embody an intrinsically
(Syrian Arab Republic) and Historic Cairo CONTRIBUTE TO more sustainable pattern of land use,
(Egypt) in 1979, and later by a significant SUSTAINABLE URBAN consumption and production, developed
number of urban districts from the Arab DEVELOPMENT? over centuries if not millennia of slow
States and Latin America. Likewise, the adaptation between the communities and
regions of Europe and Asia have long The protection of exceptional heritage their environment. This is true for natural
valued their historic urban sites. In Africa, properties cherished by people all over the protected areas rich in biodiversity, of
the first urban heritage sites, Timbuktu and world can be considered as an intrinsic course, but also for cultural landscapes and
djenné (Mali), were inscribed in 1988. contribution to human well-being. But in historic cities.
addition to its intrinsic value for present
With an initial focus on monuments and and future generations, World Heritage – World Heritage, of course, is also essential
sites, World Heritage properties have and heritage in general – can also make an to the spiritual well-being of people for its
gradually shifted to include more complex important contribution to sustainable powerful symbolic and aesthetic
environments, and now encompass development across its various dimensions. The acknowledgment and
landscapes and larger territories, including dimensions. conservation of the diversity of the cultural
cities, or focus on the relationship between and natural heritage, fair access to it and
a city and its rural landscape. As a result, Through a variety of goods and services the equitable sharing of the benefits
urban heritage has been included in and as a storehouse of knowledge, a well- deriving from its use, enhance the feeling
cultural landscapes, such as the Cultural protected World Heritage property may of place and belonging, mutual respect for
Landscape of Sintra (Portugal), or as urban contribute directly to alleviating poverty others and a sense of purpose and ability to
landscape sites, such as the Carioca and inequalities by providing basic goods maintain a common good, which contribute
Landscape and Seascape of Rio de Janeiro and services, such as security and health, to the social cohesion of a community as
(Brazil). The notion of historic urban through shelter, access to clean air, water, well as to individual and collective freedom
landscape has thus triggered not only a food and other key resources. of choice and action. The ability to access,
broader approach to urban conservation enjoy and care for one’s heritage is
management but also to the designation of Preserving natural resources, including essential for what Amartya Sen calls the
urban heritage sites. outstanding sites containing some of the ‘capability of people to live and to be what
richest combinations of terrestrial and they choose’ (UNdP, 2004), that is a
marine biodiversity, is obviously a fundamental component of human
Managing urban World Heritage fundamental contribution to development.
environmental sustainability. Most of these
With more than 1,631 human settlements sites, on the other hand, have developed A well-maintained heritage is also very
worldwide containing World Heritage,3 a over time through mutual adaptation important in addressing risks related to
significant number of local governments between humans and the environment, natural and human-made disasters.
are directly involved in managing World and thus demonstrating how biological and Experience has shown how the
Heritage properties. While urban heritage cultural diversities interact with and affect degradation of natural resources,
is usually managed by local authorities, one another in complex ways in a sort of co- neglected rural areas, urban sprawl and
single sites in an urban context may also evolutionary process. poorly engineered new constructions
be under the responsibility of specific private increase the vulnerability of communities
or public entities, such as religious commu- Very often, World Heritage is also an to disaster risks, especially in poorer
nities or state institutions. important asset for economic countries. On the other hand, a well-
development, by attracting investments conserved natural and historic
and ensuring green, locally-based, stable environment, based on traditional
and decent jobs, only some of which may be knowledge and skills, considerably reduces
related to tourism. Activities associated to underlying disaster risk factors,
3
See: http://whc.unesco.org/archive/2016/whc16- the stewardship of cultural and natural strengthens the resilience of communities
40com-5d-en.pdf
heritage, indeed, are local by definition (i.e. and saves lives.
254
At times of crisis, moreover, access to and

care for the heritage may help vulnerable
people recover a sense of continuity,
dignity and empowerment. In conflict and
post-conflict situations, in particular, the
acknowledgment and conservation of
heritage, based on shared values and
interests, may foster mutual recognition,
tolerance and respect among different
communities, which is a precondition for a
society’s peaceful development.
Integrating a sustainable development

perspective within the implementation
of the World Heritage Convention
On 19 November 2015, the 20th General Historic Area of Bridgetown (Barbados)

©Anton_Ivanov / Shutterstock.com*
Assembly of the States Parties to the World
Heritage Convention adopted a policy on
the integration of a sustainable development
The Organization of World Heritage
perspective into the processes of the Con-
Cities (OWHC)5
vention.4 The overall goal of the policy is to
assist States Parties, practitioners, institutions,
communities and networks to harness the The actions of World Heritage cities aim to
potential of World Heritage properties, and inspire urban stakeholders to build on their
heritage in general, to contribute to sus- tangible and intangible heritage to promote
tainable development. Moreover, the policy sustainable urban development. Municipal-
serves to increase the effectiveness and ities that are managing World Heritage
relevance of the Convention whilst respecting cities have formed the Organization of World
its primary purpose and mandate of pro- Heritage Cities (OWHC). This voluntary, non-
tecting the Outstanding Universal Value of governmental network was founded in 1993
at the initiative of the Mayor of Quebec
World Heritage properties. In line with the
City (Canada), Jean-Paul L’Allier, to provide
2030 Agenda for Sustainable Development, a platform for local decision-makers and
this new policy is based on the three di- urban heritage professionals to discuss chal-
mensions of sustainable development, name- lenges and solutions related to World Her-
ly environmental, social and economic de- itage protection and management at the
velopment, and complemented by fostering local level. As of 2016, the organization
peace and security. Its adoption represents counts 280 member cities worldwide, man-
a significant shift in the implementation of aged through its headquarters in Quebec
the Convention and an important step in City, and 8 regional secretariats.
its history.
4
See: Resolution 20 GA 13, adopted by the 20th
General Assembly of the States Parties to the World
Heritage Convention (2015), and documents WHC- 5
See: http://www.ovpm.org/
15/20.GA/13 and WHC-15/20.GA/INF.13.
255
dOSSIER 3 United Nations

Creative Cities
Network
THE UNESCO CREATIVE CITIES

(GXFDWLRQDO6FLHQWL¿FDQG
Cultural Organization
NETWORK (UCCN)
WHY A UNESCO CREATIVE WHAT IS THE UNESCO Figure 6. PERCENTAGE OF UCCN CITIES WITHIN
CITIES NETWORK? CREATIVE CITIES NETWORK? THE SEVEN CREATIVE FIELDS (2016)
It is first and foremost at the local level As of 2016, the UCCN consists of 116 Crafts and
that culture and creativity are lived and member cities in 54 countries, located in all Folk Art 17% Music 16%
practised on a daily basis. By stimulating regions of the world.2 The UCCN comprises
the growth of the cultural industries, a large variety of cities in terms of size and
Media Arts 8%
supporting creation, promoting citizen population, geographical situation, levels of
and cultural participation, and GdP and economic development, and
Design 19%
approaching the public sphere with a covers seven creative fields: Crafts and Folk
new perspective, public authorities, in Art, design, Film, Gastronomy, Literature,
cooperation with the private sector and Media Arts, and Music. Literature 17%
civil society, can foster a more
sustainable urban development suited To apply for membership to the UCCN, Film 7%
to the practical needs of the local cities can submit an application form Gastronomy 16%
population. In this context, cooperation through regular calls by UNESCO.
and the sharing of experiences and Member cities are designated by the
knowledge is crucial for identifying new director-General of UNESCO in line with
In order to analyse and communicate their
trends and conceiving innovative the programme’s designation procedures,
role as laboratories of ideas and
solutions to tackle common challenges. following consultations with two groups:
innovation, the member cities of the
UNESCO-designated independent
UCCN are required to present a
The UNESCO Creative Cities Network experts and/or non-governmental
Membership Monitoring Report every
(UCCN)1 was created in 2004 with a organizations, as well as UCCN member
four years. These reporting exercises allow
forward-thinking and exploratory cities organized by creative field. While the
them to demonstrate their steadfast
approach to promote cooperation with submission of an application is the decision
commitment to the implementation of the
and among cities and local governments of a city government, the national
UCCN Mission Statement, both at the
that have identified cultural diversity and commissions of the respective Member
local and international level, and to renew
creativity as strategic factors for their States must also lend their support to the
this commitment through the presentation
local economies and sustainable urban application.
of an action plan for the subsequent four
development. When launching the UCCN
years. It further allows members to obtain
in 2004, UNESCO’s Executive Board By joining the UCCN, cities commit to
a better understanding of the impact of
acknowledged the importance of implementing its Mission Statement,3
designations, and to encourage the
strengthening partnerships with cities which calls for placing creativity and
development of research and case studies
and local governments in view of their cultural industries at the heart of local
on the concepts and experiences of
evolving role in the promotion of cultural development in support of economic,
creative cities.
diversity. The Executive Board also social, cultural and environmental
recognized the potential for a worldwide sustainability, and actively cooperating at
By gathering and disseminating systematic
network of creative cities to strengthen the international level. The UCCN
information, it is possible to monitor
the development of local cultural members thus work at both the local and
progress more effectively, showcase the
industries, to promote active cooperation internationals levels, developing
concrete achievements of the UCCN
among cities and local governments, partnerships involving the public and
members, highlight effective policies,
and to contribute to UNESCO’s visibility private sectors, as well as civil society, and
strategies and partnerships, and support
among its Member States. Since 2005, sharing best practices towards:
evidence-based formulation and
the UCCN has also been associated with • strengthening the creation, production,
implementation of new action plans, while
UNESCO’s actions for implementing the distribution and dissemination of cultural
underscoring emerging issues regarding
2005 Convention on the Protection and activities, goods and services;
the role of culture and creativity in
Promotion of the diversity of Cultural • developing hubs of creativity and
sustainable urban development.
Expressions. Today, the UCCN is important innovation and broadening opportunities
to UNESCO, not only as a platform for for creators and professionals in the
reflection on the role of creativity as a lever cultural sector;
for sustainable development, but also as a • improving access to and participation in
source of action and innovation. The cultural life, in particular for marginalized
UCCN is entirely funded by or vulnerable groups and individuals;
extrabudgetary sources, based on • fully integrating culture and creativity
voluntary contributions from individual into sustainable development plans.
cities, Member States and foundations.
2
Ibid.
3
See: http://en.unesco.org/creative-
cities/sites/creative-cities/files/Mission_Statement_
UNESCO_Creative_Cities_Network.pdf
1
See: http://en.unesco.org/creative-cities/
256
Montreal (Canada).
© Cindy Boyce, 2013-2014
HOW DO UNESCO CREATIVE Creative Cities are hubs of innovation and strategic objectives of an expanded and
CITIES CONTRIBUTE TO breeding grounds for the development of well-balanced UCCN.
SUSTAINABLE URBAN new strategies, policies and initiatives
DEVELOPMENT? aimed at making culture and creativity a The actions and positive experiences of
driving force for sustainable development the Creative Cities are meant to inspire
Creative Cities contribute to several and urban regeneration, helping to urban stakeholders around the world to
SdGs, in particular those on poverty increase opportunities for a broader range build on their cultural assets and creative
alleviation (Goal 1), gender equality (Goal of communities, while contributing to more industries for sustainable urban
5), and economic growth (Goal 8), along inclusive social patterns and urban development in their respective cities.
with creating sustainable cities and economies. In this way, Creative Cities To this end, the UCCN not only functions
communities (Goal 11). respond to major local challenges such as as a laboratory of new initiatives to
the economic crisis, environmental operationalize the 2030 Agenda for
Like other urban areas around the world, degradation, demographic growth and Sustainable development, but also a
the challenges faced by the Creative Cities social tensions, and can exchange laboratory of ideas. The linkages between
include the need to transform derelict experiences and best practices at the the UCCN and UNESCO’s mandate are
areas for contemporary urban uses, to international level. They demonstrate that reinforced through efforts to enhance the
enhance the inclusion of socially- the creative industries play a vital role in contribution of the UCCN to data
marginalized groups, and to improve the sustaining local economies and in creating collection and research efforts, enlarge
dynamics and diversity of their urban new economic opportunities. They help the pool of experts – both researchers and
economies. Creative Cities are tackling improve access to and participation in practitioners – in the field of creativity and
these challenges, among others, by cultural life, as well as the enjoyment of sustainable urban development and
instigating activities linked to their cultural goods and services, particularly contribute to the formulation and
respective creative field and fully among marginalized or vulnerable groups implementation of urban strategies for
capitalizing on their creative assets as a and individuals. the seven creative fields covered by the
basis for building sustainable, inclusive and UCCN.
balanced development in economic, Moreover, the UCCN offers exceptional
cultural, environmental and social terms. opportunities for cities to draw on peer Durán (Ecuador), UNESCO Creative City
Solutions include built interventions in the learning processes and collaborative of Crafts and Folk Art
CREATIVITY GOES HAND-IN-HAND
urban fabric, the organization of urban projects at the regional and international
WITH COLLECTIVE MEMORY, URBAN
festivals and events fostering cultural levels in order to foster the WELL-BEING AND SOCIAL COHESION
participation, reinforcing the capacities of internationalization of local cultural
cultural professionals, training and industries, enhance the mobility of artists Since 2007, the annual festival ‘Memories
supporting new talents, investigating new and cultural professionals, and build of the Railroad’ has been held in Durán
forms of creation and the adoption of capacities in policy-formulation and (Ecuador) in honour of the former railway
policies and measures that support an implementation. The degree of workers of the old Eloy Alfaro Railroad. The
enabling environment for local creative international connectivity and the types of event has given rise to an ongoing project
industries. Thus, by focusing their actions cooperation with other Creative Cities undertaken by the municipality entitled
on local know-how, Creative Cities not drive this process. However, most cities are
‘History on frontages’, which gives free rein
actively engaged in bilateral or multilateral
to local artists to paint more than 100
only reinforce their inhabitants’ sense of murals on the facades of houses illustrating
pride and identity, but also their capacity to projects, as well as in exchanges with other the history of the city. In light of the strong
generate new sources of income and social member cities in the same creative field. An participation of youth, the city implemented
cohesion. annual meeting allows members to share a second initiative entitled ‘Youth for Human
their experiences across sectors and Rights’, involving more than 150 young
serves as a platform for defining the
257
artists.
Dakar (Senegal), UNESCO Creative City

of Media Arts
STIMULATING AND FUNDING
CREATIVITY
Dakar, the capital of Senegal, has imple-

mented a Cultural and Artistic Development
Plan aimed at revitalizing the sectors of
creativity and culture, through the estab-
lishment of facilities dedicated to the creation,
production and dissemination of cultural
goods and services. In this context, the Puebla cable car
municipality has strengthened the capacities ©Municipality of Puebla-Tourism Secretariat of Puebla
of 19 socio-cultural centres by enlarging
their cultural offer, conducting training work-
shops and establishing spaces for the
creation and dissemination of artistic works.
Shenzhen (China), UNESCO City of Saint-Étienne (France), Bilbao (Spain),
To foster social cohesion and equal oppor- Design Graz (Austria), Helsinki (Finland),
tunity, the centres adopt an inclusive ap- IMPROVING THE EXCHANGE AND UNESCO Creative Cities of Design, and
proach by targeting self-taught artists in MOBILITY OF ARTISTS Ljubljana (Slovenia), UNESCO Creative
particular. This initiative has benefited from City of Literature
significant financial support from the Cultural Organized by the Shenzhen City of Design RE-THINKING THE CONTEMPORARY
and Private Initiatives Support Fund, demon- Promotion Office and the Shenzhen City of CITY THROUGH THE PRISM OF A
strating the strong commitment of the city Design Promotion Association (SDPA), the MULTI-LEVEL NETWORK
to fund creativity and open pathways for Shenzhen Design Award for Young Talents
promising, emerging artists. (SZ+DAY) aims to encourage young talents ‘Human Cities: Challenging the City Scale’
to make contributions to create greener, is a four year-long programme, implemented
more environmentally-friendly and sus- in the framework of Creative Europe 2020,
tainable cities. The project encourages ex- which explores the reshaping of public
Adelaide (Australia), UNESCO Creative spaces through design, with the overall
City of Music changes between designers under 35 and
architects under 40 years-of-age from all objective of affirming the central role of
CITY-DWELLERS AND POLICY- creativity in the public policies and action
MAKERS ON THE SAME BEAT the Creative Cities and supports their efforts
to enhance environmental sustainability, plans of cities. Led by the City of Design,
social and economic development and, Saint-Étienne (France), along with 12 other
In Adelaide (Australia), music is at the core
above all, quality of life in cities through European partners, this programme in-
of the city’s cultural life. In 2014, a pioneering
creativity. volves UNESCO Creative Cities of Design
Music Development Office was established
and Literature.
with the objective of making music central
to the city’s identity and development.
Moreover, the City Council has implemented
a comprehensive Live Music Action Plan,
which identifies live music venues and
clusters and recognizes future locations for
live music investment and development. It
is worth noting that while decision-makers
and administrations play a pivotal role, ini-
tiatives also arise from local communities,
academia and the private sector.
258

International Coalition
of Inclusive and
Sustainable Cities – ICCAR
THE INTERNATIONAL COALITION

Educational, Scientific and
OF INCLUSIVE AND SUSTAINABLE CITIES - ICCAR
WHY AN INTERNATIONAL While international conventions, Latin America and the Caribbean: The
COALITION OF INCLUSIVE recommendations and declarations Coalition of Latin American and Caribbean
AND SUSTAINABLE CITIES? elaborated at the global level must be Cities against Racism was launched in
ratified and implemented by Member 2006, in Montevideo (Uruguay). 51 city
The International Coalition of Inclusive States, it is also imperative to involve actors municipalities have joined this regional
and Sustainable Cities – ICCAR,1 on the ground. UNESCO identifies cities as coalition, which is also supported by
formerly known as the International key sites for linking upstream and 34 local, national and regional institutions
Coalition of Cities against Racism, was downstream actions. The role of city in 23 countries. The Coalition is led by the
launched by UNESCO in 2004, following authorities as policy-makers at the local city of Montevideo.
the World Conference against Racism, level is considered to be crucial for
Racial Discrimination, Xenophobia and effective action. Canada: The Canadian Coalition of
Related Intolerance that took place in Municipalities against Racism and
Durban (South Africa) in 2001, which WHAT IS THE discrimination (CCMARd) was officially
called for the creation of a common INTERNATIONAL COALITION launched in Calgary (Canada) in 2007 in
front in the global fight against racial OF INCLUSIVE AND close collaboration with the Canadian
discrimination. As a collaborative global SUSTAINABLE CITIES - ICCAR? Commission for UNESCO and the
platform for cities and municipalities, Federation of Canadian Municipalities.
the Coalition assists local authorities in The International Coalition of Inclusive and The Canadian Coalition counts
combating discrimination through their Sustainable Cities - ICCAR is composed of 63 municipalities in 9 provinces.
roles as policy-makers and service seven regional and national coalitions:
providers in areas as diverse as United States of America: The U.S.
education, employment, housing Africa: The Coalition of African Cities Coalition of Cities against Racism and
provision and cultural activities. against Racism and discrimination was discrimination was launched in 2013 by
launched in Nairobi (Kenya) during the 4th the United States Conference of Mayors,
While cities are spaces of great potential, Africities Summit in 2006. 59 municipalities in cooperation with UNESCO and the
rapid urbanization and profound social in 18 countries have already joined this United States department of State. So far,
transformation can pose serious threats to regional coalition, which also counts a 51 cities from 27 federal states have joined
inclusive urban development, with many number of associated cities and partners, this collaborative platform.
cities continuing to prove fertile terrain for and is led by the city of durban (South
exclusion and discrimination on the Africa). Each coalition responds to the specific
grounds of racism, xenophobia and priorities and challenges set out in a ‘Ten-
intolerance. Arab States: The Coalition of Arab Cities Point Plan of Action’ covering the various
against Racism, discrimination, areas of competence of city authorities,
ICCAR is strategically positioned to Xenophobia and Intolerance was launched such as education, housing, employment
strengthen the inclusive character of cities in Casablanca (Morocco) in 2008 and and cultural activities, and suggests
around the world, supporting the currently counts 19 member cities in examples of practical policies for
development of participatory city-level 6 countries. Casablanca is the lead city of development by city authorities. Signatory
policies and initiatives, sharing knowledge the Regional Coalition. cities undertake to integrate this Plan of
and skills, learning from good practices and Action into their municipal strategies and
advocating for inclusive urban Asia and the Pacific: The Coalition of policies, and to involve relevant urban
development. Cities against discrimination in Asia and stakeholders, including youth, civil society
the Pacific (APCaRd) was launched in organizations and the private sector, in its
Today, ICCAR has over 500 member cities Bangkok (Thailand) in 2006 on the implementation.
worldwide across its 7 regional and occasion of the Regional Conference of
national coalitions. Cities for an Inclusive Society in Asia and Regional coalitions can enhance the impact
the Pacific. Currently, 71 cities and regional of their actions, learn from experiences of
As members of the International Coalition, organizations from 25 countries have others, and amplify their message of
cities have the double advantage of joined this regional coalition, which is led solidarity through interregional
proximity to undertake concrete actions, by the city of Auckland (New Zealand). collaboration promoted by the
which empower citizens and communities, International Coalition, as illustrated by
and connectedness, with a worldwide Europe: The European Coalition of Cities the adoption of a cooperation agreement
network of cities committed to enhancing against Racism (ECCAR), created in 2004 between the Latin American and
cooperation and exchange to strengthen in Nuremberg (Germany) has its office in Caribbean Coalition and ECCAR in 2015.
inclusion and combat all forms of the city of Potsdam (Germany), and is led
discrimination. by the city of Bologna (Italy). ECCAR has In this spirit of collaboration, UNESCO
so far brought together more than launched the Global Steering Committee
129 municipalities from 23 countries for ICCAR in Bologna (Italy), on 17-18
1
See: http://www.unesco.org/new/en/social-and-
human-sciences/themes/fight-against-discrimination/ across Europe. April 2016. Bringing together all 7 regional
coalition-of-cities/ and national coalitions of ICCAR for the
259
programme responses to phenomena of

multiple and interrelated forms of
discrimination must address these in a
holistic manner, while tackling the specific
sources of discrimination at play.
ICCAR advances this comprehensive

approach to building inclusion, supporting
cities to develop and implement initiatives
to combat discrimination, to promote the
value of cultural diversity, and to ensure
the full enjoyment of the rights of all
‘Perception’ by ‘Calligraffiti’ artist El Seed (2016)
© El Seed
Vancouver (Canada)
first time, the meeting allowed cities to more relevant. Today, however, it is also
THE EQUAL EMPLOYMENT
OPPORTUNITY PROGRAM
renew their commitment to joint action, clear from the complexity of the challenges
leadership and solidarity across the facing cities around the world, and from The Equal Employment Opportunity Program
network, positioning the International the centrality of inclusion and respect for (EEO) is a resource that provides assistance
Coalition as a key platform for the human rights in the SdGs and New Urban to staff members and departments at the
implementation of the New Urban Agenda. Agenda, that there is a broader need for City of Vancouver on issues related to equity,
The Committee also took the decision to shared action and leadership to make inclusion and building respectful workplaces.
realign the mandate, identity and priorities inclusive and sustainable development in In support of the City’s Equal Employment
of the coalition, adopting the name of the cities a reality. Opportunity Policy (1986), which encourages
International Coalition of Inclusive and the recruitment of people who are under-
Sustainable Cities – ICCAR, thereby Promoting inclusion in cities is a complex
represented in the workforce, the EEO pro-
reflecting the cross-cutting value of challenge, due in part to the intersection of
vides advice and consultation to departments
in recruiting and retaining a qualified work-
inclusion outlined in the SdGs and New different forms of discrimination and force that reflects the diversity of Vancouver.
Urban Agenda, while retaining a central exclusion based on gender, cultural or The services provided by the EEO include:
commitment to fighting racism and ethnic origin, disability, social status, etc. As community outreach; provision of information
discrimination. The meeting also resulted a result, it is very difficult in practice to on city practices and policies related to
in an engagement to undertaking a review attribute exclusionary behaviour to one or equity, inclusion and the prevention of ha-
of each regional and national coalition’s another specific form of discrimination. For rassment; collaborating with departments
Ten-Point Plan of Action in light of the instance, in the case of the marginalization to remove systemic barriers; providing train-
Sustainable development Goals (SdGs) of migrants, it can be difficult to distinguish ing on human rights, harassment prevention
and in response to contemporary discrimination based on ethnicity from
and cultural competency; assisting in the
opportunities and challenges. The Bologna discrimination based on perceived cultural
resolution of issues related to bullying and
harassment, including discrimination; col-
declaration2 was adopted, serving as a difference. Accordingly, policy and laborating with other departments to increase
powerful symbol of each city’s shared accessible, inclusive programmes and ser-
belief in the ICCAR platform. vices; and the promotion of best practices
Yala (Thailand) within departments.
HOW DOES ICCAR POLICY-MAKING: THE INCLUSIVE
CONTRIBUTE TO SOCIETY PLAN Most recently, the EEO represented the City
SUSTAINABLE URBAN of Vancouver on a national working group
DEVELOPMENT?
The Municipality of Yala has adopted an In- led by the City for All Women Initiative
clusive Society Plan to promote inclusion, (CAWI) to advance gender equality, equity
with the objective of building a sense of
The SdGs outline a comprehensive
and inclusion in Canadian municipalities.
equality among its culturally-diverse populations. The group’s joint efforts resulted in the cre-
understanding of development, which does Another goal is to encourage the full partici- ation of a guidebook: Advancing Equity
justice to the complexity and inter- pation of all ethnic groups in social, political and Inclusion – A Guide for Municipalities.
relatedness of different challenges. In this and educational life, in order to foster greater
context, inclusion is a concept that cuts tolerance and mutual understanding between With the strong support of Council and
across all priorities and action areas of the communities. In this context, the municipality senior management, the EEO Programme
2030 Agenda for Sustainable
has set up a community committee meeting is a good example of how a city can integrate
project, a training and professional group
development and addresses all forms and meeting project, a child development centre,
principles and best practices of equity and
manifestations of discrimination. This a university admission tutorial and a cultural
inclusion across the workplace. This kind of
holistic approach to promoting urban
programme is an effective way to outreach
exchange learning camp.
inclusion is shared by the International
and build partnerships to create a workforce
that reflects the composition of the popula-
Coalition, and guides its vision and Yala’s Inclusive Society Plan is a promising tion, and welcomes the diversity of experi-
priorities. example of a programmatic commitment by ences, perspectives and talents of its em-
a municipality to build a culture of diversity ployees. The Programme is particularly ef-
More than 10 years after the creation of and tolerance, free from all forms of discrim- fective because it offers a supported means
the International Coalition, this call for ination. Through the plan, the municipality to implement city policies and priorities re-
global unity in combating racism and all
also strives to promote open communication lated to equity and inclusion. Since individual
with communities and transparency in its
forms of discrimination has never been governance. The city wishes to serve as an
departments rarely have personnel with ex-
pertise in equitable hiring practices, the
example for others, promoting the value of advising services of the programme are es-
2
See: http://coalicionlac.org/documentos/declaracion_ cultural diversity as a key feature of sustainable pecially relevant.
Bologna_abril2016.pdf urban development.
260
‘Perception’ by ‘Calligraffiti’ artist El Seed (2016),

Manshiyat Nasr, Cairo (Egypt)
© El Seed
citizens. These initiatives cover policy

Montevideo (Uruguay) Winnipeg (Canada)
areas as diverse as education, culture, THE AFRO-URUGUAYAN HOUSE OF KNOW YOUR NEIGHBOURS GUIDE
housing and employment and sports, with CULTURE
solutions that include measures for The Know Your Neighbours Guide1 (which is
prevention, vigilance, awareness-raising, The Afro-Uruguayan House of Culture Project now in its 3rd edition) is prepared by the
empowerment and mediation. was funded thanks to Spanish cooperation Citizen Equity Committee for the City of Win-
and managed by the Department of Social nipeg. It is a resource depicting the city’s
Development of the Municipality of Monte- cultural diversity and provides a better un-
Auckland (New Zealand) video. The principal objectives of the Afro- derstanding of how diversity and differences
CULTURAL CELEBRATIONS Uruguayan House of Culture are to promote contribute to the strength of the city. The
PROMOTING DIVERSITY a better understanding of the values, cus- chapters are organized by continent and then
toms, culture and history of those of African alphabetically by the ethnic origin of groups
Auckland is governed by the Local Govern- descent and its contribution to Uruguayan with a population of 500 people or more.
ment Act 2002, enacted by the New Zealand society and social cohesion. The book compiles information that each
Parliament for the management and gover- community provides about the history, etiquette
nance of local bodies throughout the country. To this end, the municipality of Montevideo and customs of their cultural group. The re-
Guided by the commitments set out in the has ordered the allocation of a property source aims to promote open dialogue and
Ten-Point Plan of Action of the Coalition of within a cultural heritage site which will greater cultural awareness by empowering
Cities against Discrimination in Asia and become the headquarters of the Afro- citizens to start a conversation with a neighbour
the Pacific, the work of the city council is to Uruguayan Cultural House. The building is in Winnipeg’s multicultural tapestry.
engage with and enable communities to located in the heart of the Palermo neigh-
build awareness, trust, respect and under- bourhood, opposite the Conventillo Ansina, The Know Your Neighbours Guide provides
standing of each other’s cultural differences. an emblematic cultural area of African descent, the reader with an understanding of the
The council is committed to working with as it was originally where black families, the various cultures and ethnic communities
each of Auckland’s many communities, in- descendants of slaves, settled. The areas in that are part of Winnipeg and fosters cross-
cluding the Maori, Pacific, Asian, Indian which the House of Culture will focus are re- culture appreciation, sharing and under-
Pakeha and European, to name but a few covery; research and promotion of Afro- standing – helping to positively promote
of the nearly 200 nationalities that make Uruguayan culture; education and social de- one of Winnipeg’s greatest assets: its diversity.
up the city’s diverse population. velopment; international relations; cooperation;
and the organization of a carnival. In the context of the global momentum
To achieve these objectives, the Auckland around inclusive and sustainable urban de-
Council celebrates the culture of all ethnic The strengthening of the Afro-Uruguayan velopment, fuelled by the SDGs, Habitat III
groups, sharing traditions, culture and culture and the participation of the Afro- and the New Urban Agenda, the International
cuisine. Amongst the city’s numerous cultural Uruguayan community in the social and Coalition is strategically positioned to respond
initiatives are the Pasifika Festival, celebrating cultural life of the city promotes inclusion to these emerging priorities, capitalizing
the culture of the Pacific People of Polynesia; and intercultural dialogue between the city’s on its worldwide experience in the promotion
the Lantern Festival, which celebrates Chinese communities. of urban inclusion. ICCAR also serves as a
culture; and the Diwali Festival celebrating powerful platform for the mobilization of
Indian Culture. The city’s secondary schools collaborative partnerships with actors from
also host the ASB Polyfest, the largest Pacific diverse sectors, including civil society,
dance festival in the world. research communities, the private sector
and the media.
Celebrating the rich diversity of cultures
and traditions in a city can be a powerful As the global community reaffirms its com-
means of fostering mutual understanding, mitment to building peaceful, just and eq-
appreciation and interactions between dif- uitable cities for all, ICCAR can take the
ferent communities, building effective pro- lead as a truly global platform for solidarity,
tection against discrimination and exclusion. advocacy, collaboration and exchange to
support sustainable urban development in
the twenty-first century.
1
See: http://winnipeg.ca/clerks/boards/citizenequity/
pdfs/WPGsKnowYourNeighboursGuide.pdf
261
THE UNESCO GLOBAL NETWORK

Educational, Scientific and
OF LEARNING CITIES (GNLC)
WHY A GLOBAL NETWORK policy dialogue and peer learning among Conference on Learning Cities was held in
OF LEARNING CITIES? members, forging links, fostering 2015 in Mexico City (Mexico). This
partnerships, building capacities and conference opened up the GNLC to all
Lifelong learning systems are at the developing instruments to encourage and cities interested in membership.
heart of both UNESCO’s work on recognize progress in building learning
Education for All (EFA) and the cities. This international policy-oriented WHAT IS THE UNESCO
Education 2030 Framework for Action. network gathers together cities that view GLOBAL NETWORK OF
Lifelong learning is also an integral part lifelong learning as being crucial for their LEARNING CITIES?
of the 2030 Agenda for Sustainable inclusive, sustainable urban development.
Development. A growing number of The UNESCO GNLC is an international
cities have identified lifelong learning as At the 1st International Conference on policy-oriented network for sharing
key to tackling challenges relating to Learning Cities in October 2013 in Beijing inspiration, know-how and best practices,
social cohesion, economic development (China), the Beijing declaration on Building which aims to support and improve
and sustainability in their cities. Learning Cities1 and the Key Features of learning cities around the world.
Learning Cities2 were adopted, which
The UNESCO Global Network of Learning serve as the guiding documents of the As of June 2016, the GNLC consisted of
Cities (GNLC) was established by GNLC today. They provide cities and their more than 100 member cities from every
UNESCO through the UNESCO Institute partners with an overall framework region of the world. Current member
for Lifelong Learning, with the mission of describing the key features of a learning cities range from metropolises with
supporting and accelerating the practice of city and the actions that must be taken to several million inhabitants, such as Mexico
lifelong learning in cities by: promoting build a learning city. A 2nd International City (Mexico), Amman (Jordan) and
KEY FEATURES OF LEARNING CITIES

nd Econ
ent a omi
p o werm n cultuc develo
l e m e s i o ral p pmen
idua l coh rosp
e r i t yt a n d
Indiv socia Lifelong learning for all
WIDER BENEFITS is our city’s future
OF BUILDING A
Sustainable development
LEARNING CITY
and excellence in learning
families and communities
Extended use of modern
learning throughout life

Inclusive learning in the
Revitalized learning in
learning technologies
and in the workplace
Effective learning for
MAJOR BUILDING
A vibrant culture of
Enhanced quality
education system
BLOCKS OF A
LEARNING CITY
Strong political will and commitment

FUNDAMENTAL
CONDITIONS
Governance and participation of all stakeholders
FOR BUILDING A
LEARNING CITY
Mobilization and utilization of resources
Learning Cities are defined as cities which effectively mobilize their resources in every sector to:
• promote inclusive learning from basic to higher education;
• revitalize learning in families and communities;
• facilitate learning for and in the workplace;
• extend the use of modern learning technologies;
• enhance quality and excellence in learning, and;
• foster a culture of learning throughout life.
In so doing they seek to create and reinforce individual empowerment and social cohesion, economic
and cultural prosperity, and sustainable development.
1
See: https://www.dvv-
international.de/fileadmin/files/beijing_declaration_en.pdf
262
2
See: http://unesdoc.unesco.org/images/0022/00226
7/226756e.pdf
São Paulo (Brazil), to smaller-scale need of each city to continuously enhance knowledge, skills, values and attitudes.
municipalities such as Ybycui (Paraguay) its governance. By empowering individuals, member cities
and Melton, which is located in the enhance the social cohesion, as well as the
metropolitan area of Melbourne (Australia). Cities which have already engaged in economic and cultural prosperity, of their
building the foundations of their citizens’ communities. The knowledge and skills
Any municipality that wishes to enhance well-being through learning opportunities individuals develop throughout life allow
education and lifelong learning in its should encourage others to join the both individuals and communities to more
community can join the GNLC. UNESCO Global Network of Learning easily adapt to change – be it social,
Cities. With the majority of the world’s environmental or economic – and thus be
All member cities have agreed to the population now living in urban areas, it is at resilient in the face of global challenges.
Beijing declaration on Building Learning the local level that sustainable
Cities and the Key Features of Learning development can be achieved.
Cities, and have committed to pursue the Cork (Ireland)
vision of enhancing lifelong learning and HOW DO LEARNING CITIES
LIFELONG LEARNING FESTIVAL
becoming a Learning City. The GNLC’s CONTRIBUTE TO
SUSTAINABLE URBAN
The Lifelong Learning Festival has been a
member cities are represented by mayors
DEVELOPMENT?
key achievement in the transformation of
or a representative appointed by the Cork into a Learning City. It involves partners
mayor and are defined as an administrative from the state, civil society and private
unit governed by a city council or another The idea of learning throughout life is sector, all of which offer opportunities for
elected body. A Learning City could deeply rooted in all cultures. In today’s fast- learning and training.
therefore be a learning municipality, a changing world, where cities are
learning village, a learning town or a increasingly becoming home to new During the week-long festival, citizens can
learning community. The member cities immigrant and migrant groups, lifelong get a taste of the learning opportunities
benefit from a number of support learning is becoming increasingly relevant,
their city has to offer through approximately
500 events – all free of charge. These
mechanisms, such as documentation, as social, economic and political norms are events are run by statutory bodies, individuals
exchanges with other cities, training constantly being redefined. The and voluntary and private organizations,
materials, and enhanced communication recognition of cultural diversity and its and feature all aspects of civil society (in-
and promotion of good practices. multiple values must be a precondition for cluding the arts, industry, health, IT, the en-
Furthermore, member cities who make appreciating and enhancing individual vironment, genealogy, languages, local his-
outstanding progress in building a Learning knowledge. tory and architecture). These events can
City can apply for the UNESCO Learning take the form of performances, talks, tours,
City Award, which is conferred biennially. Studies have shown that lifelong learners debates, classes, demonstrations, workshops
– citizens who acquire new knowledge, and international seminars.
The member cities of the GNLC are skills and attitudes in a wide range of
In the framework of the Lifelong Learning
pioneers in the development, testing and contexts and throughout their life – are Festival, year-round community projects are
application of diverse tools for lifelong better equipped to adapt to changes in also organized with the city of Belfast (UK).
learning, which benefit both their citizens their environments and contribute to Started in 2011, the projects range from
individually, and the quality and livability of addressing challenges resulting from learning how to build and row traditional
their local environments. They are not only those changes. Lifelong learning and boats to painting murals. These initiatives
promoting lifelong learning for all at their learning societies therefore have a vital encourage people from Northern Ireland to
respective local levels, but also among their role to play in the transition to sustainable spend time in Cork, giving residents from
fellow cities, thereby acknowledging the societies. both regions the opportunity to learn about
each other.
Ensuring inclusive and equitable quality
6 STAGES FOR BUILDING Over the years, the festival has challenged
LEARNING CITIES education and promoting lifelong learning people’s perceptions about learning and
opportunities for all (SdG 4) is at the heart
1 aDevelop
helped individuals and institutions to reimag-
a plan for becoming of learning city development, in addition to ine the role of learning in diverse activities
learning city making cities inclusive, safe, resilient and and organizations, repositioning learning
sustainable, as promoted in SdG11.
2 structure
as a core activity that is central to life in the
Create a coordinated city. An inclusive event, the festival showcases
involving all Cities are engines of economic growth. As opportunities for learning and training
stakeholders
lifelong learning is considered to be one of among people of all ages, backgrounds,
3 process
the most important ways of fuelling this abilities and interests, while also supporting
Initiate and maintain the growth, particular emphasis needs to be
disadvantaged and marginalized groups,
with celebratory such as people with special learning needs
events placed on quality growth. This involves and immigrants.
developing innovative strategies that
4 accessible
Make sure that learning is enable citizens of all ages to learn new skills
to all citizens and competencies throughout life.
5 evaluation
Establish a monitoring and
process to
ensure learning city
Through their commitment, the Learning
Cities provide a worldwide platform for
progress creating good practices and laboratories of
lifelong learning tools in the local urban
6 Ensure sustainable funding

context. By enabling their citizens to learn
throughout life, Learning Cities promote
the development of their citizens’
263
Namyangju (Republic of Korea)

© Namyangju Institute of Lifelong Education
Namyangju (Republic of Korea)

LEARNING LIGHTHOUSES
Namyangju has focused on improving the infrastructure involved in the provision of lifelong
learning opportunities. With its Learning Lighthouses, the city of Namyangju aims to provide
introductory lifelong learning experiences to citizens of all ages, and particularly targets
citizens who previously had difficulties participating in learning initiatives due to issues such
as a lack of transport, mobility problems, old age or parental responsibilities. The goal is to
improve accessibility to educational and cultural opportunities and to ensure that no resident
is more than a ten-minute walk away from the nearest Learning Lighthouse.
Learning Lighthouses convert spaces lying idle in the city, such as empty apartments, offices,
community centres and nursing homes, into learning spaces. These initiatives generally
originate from the citizens themselves. Residents of an apartment block, for example, might
come together and decide to set up a Learning Lighthouse in an empty apartment on their
block.
At the level of the city, the Learning Lighthouse Committee is responsible for determining
lifelong learning programmes based on resident surveys, promoting relevant Learning
Lighthouse programmes, and recruiting and advising learners. Such programmes typically
relate to health and well-being, culture and the arts, the liberal arts and basic literacy
education, and are tailored to different age groups.
A network of Learning Lighthouses connects learning communities with each other in order to
build a collaborative spirit, enable communities to share business models, and ensure that
available resources flow throughout the entire city.
264
dOSSIER 6
THE UNESCO MAN AND THE BIOSPHERE
(MAB) PROGRAMME FOR SUSTAINABLE CITIES
Launched in 1971, UNESCO’s Man and

the Biosphere (MAB) Programme is an
intergovernmental scientific
programme that aims to combine the
practical application of natural and
social sciences, economics and
education to improve human
livelihoods, promote the equitable
sharing of benefits and safeguard
natural and managed ecosystems. In
this regard, it fosters innovative
approaches to economic development
that are socially and culturally
appropriate and environmentally
sustainable.
The MAB Programme is implemented in

internationally-recognized biosphere
reserves, which make up the World
Network of Biosphere Reserves (WNBR)
that currently comprises 669 biosphere
reserves in 120 countries.1 Nominated by
national governments and remaining
under the sovereign jurisdiction of the Castelnuovo di Garfagnana (Italy).
states where they are located, biosphere © Roberto Lo Savio/Shutterstock.com*
reserves are ideal to test and apply

interdisciplinary approaches to better shaped by urban influences and adaptation. More than 20 field projects
understand and manage changes in social pressures, and set up and managed to followed, on such themes as energy flows
and ecological systems. Similarly, they mitigate these pressures for improved and recycling in Lae (Papua New Guinea),
demonstrate innovative approaches urban and regional sustainability’ urban flora and fauna in Berlin (Germany)
sustainable development from local to (UNESCO, 2004). and Xalapa (Mexico), children in Toronto
international scales, including urban and (Canada), urban green spaces in dayton
peri-urban environments. WHERE ARE URBAN (USA), Seoul (Republic of Korea) and
BIOSPHERE RESERVES? Valencia (Spain), and linkages between
In the early 1970s, the MAB Programme the urban and rural environments in
(MAB) promoted the first worldwide According to the above-mentioned Bangkok (Thailand) and Rome (Italy).
international research initiative on working definition, a significant number of
ecological approaches to urban systems the 669 biosphere reserves can be More recent work has focused on
and other human settlements. Over the characterized as urban biosphere applying the biosphere reserve concept to
past decades, urbanization has become reserves, as urbanization is increasingly urban areas. Examples of urban biosphere
one of the major global multidimensional influencing previously more pristine reserves in the vicinity of large urban
processes facing biosphere reserves, and biosphere reserves and constituting areas are Cuenca Alta del Rio Manzanares
the existence of cities in or nearby larger parts of the reserves’ transition (Madrid, Spain), Arganeraie (Agadir,
biosphere reserves has become the norm areas. Although entirely urban-oriented Morocco), Cibodas (Bogor–Jakarta,
rather than an exception. Recognizing biosphere reserves have not yet been Indonesia), Can Grove Mangrove (Ho Chi
these developments, the MAB Urban included in the WNBR, many cities Minh, Viet Nam), Cape West Coast and
Group was launched in 2000 to understand and aim to apply the concept Kogelberg (Cape Town, South Africa),
investigate the contribution of biosphere of biosphere reserves as a tool for Cerrado (Brasilia, Brazil), Golden Gate
reserves to sustainable urban advancing solutions for enhanced nature- (San Francisco, USA), Laplandskiy
development. The MAB Urban Group culture linkages and promoting human (Moncgegorsk, Russian Federation), Mata
defined an ‘urban biosphere reserve’ as a well-being through environmental quality, Atlantica (Rio de Janeiro and São Paulo,
‘biosphere reserve characterized by while functioning as main urban hubs of Brazil), Montseny (Barcelona, Spain),
important urban areas within or adjacent knowledge, capital and innovations. Mont Saint-Hilaire (Montreal, Canada),
to its boundaries where the natural, socio- Mornington Peninsula (Melbourne,
economic and cultural environments are Research on cities and biodiversity Australia), dublin Bay (dublin, Ireland),
conservation was first promoted through Pays de Fontainebleau (Paris, France),
a pioneering study in the mid-1970s on Pereyra Iraola (Buenos Aires, Argentina),
Hong Kong, including a survey of the Puszcza Kapinoska (Warsaw, Poland) and
1
See: http://www.unesco.org/new/en/natural-
sciences/environment/ecological-sciences/biosphere- quality of life of individuals and human Wienerwald (Vienna, Austria).
reserves/world-network-wnbr/
265
West Coast National Park (South Africa).

© Andrea Willmore/Shutterstock.com*
HOW DO BIOSPHERE It does so through targeted actions in

RESERVES CONTRIBUTE TO biosphere reserves, carried out in The Appennino Tosco-Emiliano
SUSTAINABLE URBAN partnership with all sectors of society, to
Biosphere Reserve (Italy)
DEVELOPMENT?
STRENGTHENING RURAL-URBAN
ensure the well-being of people and their
CULTURAL LINKAGES
environment.
Urban biosphere reserves contribute to Designated a WNBR in 2015 the reserve
urban sustainable development through encompasses 38 municipalities spread over
Cape West Coast Biosphere Reserve
conserving landscapes and ecosystems, (CWCBR) (South Africa) five provinces: Parma, Reggio Emilia and
strengthening both economic and cultural URBAN AND SOCIAL DEVELOPMENT Modena in Emilia Romagna, and Lucca and
development, and supporting education, IN HARMONY WITH THE BIOSPHERE Massa Carrara in Tuscany. The area includes
training, and research on sustainable the cities of Langhirano, Castelnovo Ne'Monti,
development issues. Experts and Within a 150,000 ha transition area, the Fivizzano and Castelnuovo di Garfagnana,
and comprises a population of approximately
decision-makers at the national level CWCBR comprises diverse landscapes, in-
100,000 inhabitants. The area also includes
increasingly apply the concept of cluding urban settlements. The settlement
numerous archaeological sites and a pre-
biosphere reserves in urban settings to areas in the CWCBR are dominated by the
historic village on Monte Valestra. The main
contribute to building green cities, and
metropolitan area of Cape Town and its
satellite residential-industrial area of Atlantis, economic activities are tourism, agriculture,
promote more sustainable relationships as well as the emerging Vredenburg-Sal- craft and high-quality food production, such
among cities and their hinterlands. danha urban-industrial complex. Moreover, as Parmigiano Reggiano cheese, Prosciutto
district towns include coastal settlements di Parma, oil, wine, honey and spelt that
The MAB Programme is an important engaged in fishing and coastal holiday des- have helped sustain a rich urban cultural
instrument to mainstream sustainable tinations. The population of the CWCBR is and gastronomic heritage. By promoting
development at all levels, and in all its essentially urban and growing rapidly, with the conservation and sustainable use of
the biodiversity and cultural landscapes,
dimensions, including in culturally-diverse the southern component of the Biosphere
the Appennino Tosco-Emiliano Biosphere
urban and peri-urban settings. It Reserve accounting for the main areas of
Reserve contributes to continued harmonious
integrates the economic, social and
urban expansion plus a number of fast-
urban and rural interactions.
environmental aspects of development
growing informal settlements. Taking a com-
prehensive approach linking biodiversity
and recognizes their vital interlinkages. and economic and social development ob-
The biosphere reserve concept has proven jectives, the Local Government Municipal
its value beyond nature protection alone. Systems and the Land Use Planning Ordi-
Moreover, it is increasingly embraced by nance, the CWCBR Framework Plan has
scientists, planners, policy-makers, statutory status as the common spatial
businesses and local communities, serving vision and direction around which to align
to bring together diverse knowledge, the CWCBR, urban renewal programmes,
scientific investigation and experiences integrated sustainable rural development
and link biodiversity conservation with
programmes, etc. It places an obligation
socio-economic development for human
on all stakeholders to promote sustainable
development effectively and concertedly.
well-being.
By aligning these planning instruments to
To understand and address the key the principles and goals of the CWCBR, the
challenges facing our world – poverty, West Coast Corridor, located between Cape
climate change, water and food security, Town and the West Coast National Park,
loss of biological and cultural diversity, could be better managed, thereby also con-
rapid urbanization and desertification – serving existing ecosystems and natural
the MAB Programme, through its WNBR vegetation to support the preservation of
and its regional and thematic networks, is
the biodiversity area for the enjoyment and
strategically addressing the 2030 Agenda
well-being of the nearby urban population.
for Sustainable development and its
Sustainable development Goals (SdGs).
266
dOSSIER 7
DISASTER RISK REDUCTION FOR SUSTAINABLE URBAN
DEVELOPMENT
The year 2015 saw major milestones

towards a new sustainable future. The
2030 Agenda for Sustainable
Development was adopted with 17
Sustainable Development Goals, one of
which is to make cities inclusive, safe,
resilient and sustainable. The Sendai
Framework for Disaster Risk
Reduction1 calls for holistic disaster
risk management at all levels. At the
COP 21 in Paris, negotiations led to an
agreement to address climate change.
The UNESCO message ‘changing minds,
not the climate’ perfectly echoes our
approach to disaster risk reduction.
While a lot has been done to promote

disaster risk reduction, natural hazards
continue to cause enormous losses
worldwide and evidence shows that
extreme events will increase due to
climate change, overpopulation and Post-Earthquake Field Investigation
urbanisation. An enormous volume of
@UNESCO/S.Yasukawa
capital is expected to flow into urban

knowledge-sharing, networking and project, which seek to train a critical mass
development in the coming decades and
policy recommendations in cooperation of experts on disaster risk and resilience
the pace and extent of urbanization
with all key stakeholders, including assessments.
presents key opportunities for
governments, civil protection and disaster
sustainable development, poverty
management authorities, civil society UNESCO supports Member States in
alleviation and closing equality gaps.
organizations, research institutions, other identifying hazard risks and required
Solutions for the complex challenge of
UN agencies, and international interventions to raise awareness and
urbanization can only be found by
organizations. protect their citizens, infrastructure,
bringing together Member States,
cultural heritage and environment.
multilateral organizations, local
CAPACITY-BUILDING FOR UNESCO is also a member of the Global
governments, the private sector and civil
RESILIENCE Alliance for disaster Risk Reduction and
society.
Resilience in the Education Sector
The Sendai Framework for disaster Risk (GAdRRRES), through which it
UNESCO’S ROLE
Reduction recognizes the need to invest contributes to promoting school safety, as
in disaster risk reduction for resilience as recommended by the Comprehensive
UNESCO operates at the interface
one of its Priorities for Action. In line with Safe School Framework and UNISdR’s
between science, education, culture and
this recommendation, UNESCO has been Worldwide Initiative on Safe Schools.
communication, playing a vital role in
actively involved in shaping UNISdR’s Using the UNESCO-VISUS science-based
constructing a global culture of resilient
new Ten Essentials for Making Cities methodology, UNESCO supports the
communities in a multi-disciplinary
Resilient, a self-assessment tool for assessment of the structural safety of
manner. The Organization is engaged in
building capacities for resilience at the educational facilities and contributes to
the conceptual shift towards disaster
city level. By co-leading the development promoting capacity-building for risk
preparedness by assisting countries to
of ‘Essential 7: Understand and assessment through training of trainers.
build their capacities in managing disaster
strengthen societal capacity for
and climate risk. As part of its mandate,
resilience’, UNESCO advocates for risk- RESILIENT CULTURAL AND
UNESCO cooperates with the United
aware and inclusive societies. NATURAL HERITAGE
Nations Office for disaster Risk
Reduction (UNISdR), Member States and
Furthermore, the Organization has Cultural and natural heritage plays a
all its partners to translate the Sendai
developed strong expertise in the major role in building resilience to
Framework into action.
development of metrics for disaster disasters. Tangible and intangible heritage
resilience assessment and on capacity- often incorporates elements to reduce
UNESCO seeks to promote community
building for resilience through the potential risks and can be a powerful
resilience to natural hazards through
implementation of international projects catalyst for engaging with local people,
early warning, capacity-building,
such as the Enhancing Natural Hazard bringing them together and enhancing
Resilience in South America (ENHANS) their sense of belonging, ownership and
1
See: http://www.unisdr.org/we/inform/publications/43291
267
Disaster Risk Reduction Education

@UNESCO/B.Aliaga
hope. The protection and rehabilitation of established International Network for

heritage can support a fast recovery Multi-Hazard Early Warning Systems.
through income generated in the informal UNESCO’s involvement in this
sector and tourism activities. However, international initiative builds on the solid
the positive contribution that heritage contribution that UNESCO has made in
can make to strengthening the resilience the field of early warning. In addition to its
of communities in the face of disasters active engagement in the development of
depends on the recognition of its hydro-meteorological EWS and its great
potential and its proper consideration in expertise in tsunami EWS, UNESCO has
disaster risk reduction policies and plans. launched the International Platform on
UNESCO works with managers of Earthquake Early Warning Systems to
UNESCO designated sites, i.e. Biosphere enhance collaboration and knowledge-
Reserves, World Heritage properties and sharing on earthquake EWS as part of its
Global Geoparks, to promote risk mandate in geosciences
reduction strategies.
Finally, UNESCO enhances the capacity
RESILIENT BUILT of Member States through the use of
ENVIRONMENTS technologies, in particular through earth
observation, crowdsourcing and satellite
UNESCO cooperates with other UN navigation systems. In close cooperation
agencies and international actors to with the EU Commission, UNESCO is
identify gaps and needs in existing implementing two multi-hazard projects,
knowledge, policies, practices and tools FLOOdIS and I-REACT, to provide multi-
necessary to safeguard and strengthen hazard information services on occurring
the built environment, and to develop hazardous events with the help of disaster
strategies and methods to address these management teams, civil protection
needs. In the area of ‘build back better’, agencies and trained citizens, acting as
UNESCO’s efforts include the ‘human sensors’.
International Platform for Reducing
Earthquake disasters (IPREd), financed
by the Government of Japan. The
platform supports science-based policy-
making through post-disaster field
investigations to analyse the causes for
the structural failure of buildings.
EARLY WARNING SYSTEMS
UNESCO reaffirms its commitment to

contribute to strengthening the
capacities of its Member States to
establish, maintain and enhance Early
Warning Systems (EWS), building on its
extensive network of practitioners and
scientists. The Organization is part of the
Steering Committee of the newly
268
dOSSIER 8 United Nations International
WATER AND SUSTAINABLE CITIES

Educational, Scientific and Hydrological
Cultural Organization Programme
UNESCO’s International Hydrological Water education. IHP’s work on the world,1 will be launched at the Habitat
Programme (UNESCO-IHP) is the only water education goes beyond the III Conference in Quito, Ecuador in
intergovernmental programme of the teaching of hydrological sciences, and October 2016.
United Nations devoted to water is both multidisciplinary and
research, management, education and interdisciplinary. It includes advancing UNESCO provides opportunities to share
capacity-building. It supports scientific knowledge through the experiences and review its work through
sustainable urban development by training of scientists and increasing involving ‘smart’ water networks that
providing Member States and their knowledge on water issues through provide guidelines on best practices for
cities and municipalities with courses aimed at water professionals sustainable management of water in
knowledge, decision-making tools, and decision-makers. It reaches out to human settlements, such as the IHP - W-
networking and training opportunities. media professionals so that they can Smart association (Water Security
communicate water issues accurately Management Assessment Research and
UNESCO-IHP addresses a range of issues and effectively. The work includes Technology) and the Syndicat
related to water in urban settings such as: community education to promote Interdépartemental pour
wider participation in water l’Assainissement de l’Agglomération
Water for human settlements. Faced conservation, and enhancing skills in Parisienne (SIAAP), as well as how to
with challenges resulting from local co-management of water secure water and wastewater networks
population growth, climate change, resources. from a variety of risks.
deterioration of urban infrastructure
and water demands that increasingly Working towards improved water
place pressures on human resources for human settlements of the Latin America and the Caribbean
settlements, the Programme supports future requires exploring new In Latin America and the Caribbean, UNESCO
cities to efficiently manage scarcer and approaches, technologies and system- established in 2009 a regional working
less reliable water resources. wide changes towards integrated urban group on urban water management, which
water management. These include: has provided a baseline assessment and
Urban ecohydrology. Integrating ensuring flexible and adaptive urban the identification of key regional concerns,
purified storm water retention in water systems and water sensitive urban
such as urban flooding. The group members
‘green areas’ in the city spatial planning design; promoting effective governance
have agreed to focus their efforts on mapping
the risks of urban flooding, and compiling
contributes to shaping an eco-friendly and institutional structures of urban information of ongoing initiatives. The group
‘blue-green city landscape’ with water management; and identifying and is also developing a regional action strategy
reduced energy consumption, disseminating best practices for different based on scientific and technical knowledge
pollutants transfer and accumulation, economic and geographic settings in and exchanging information and experience.
together with improved health and developed and developing countries.
enhanced cultural values. Asia and the Pacific
As a response, IHP focuses on five focal UNESCO-IHP focuses its efforts on improving
Floods and droughts. Unplanned areas:
knowledge of the current status of urban
•Game-changing approaches and
water systems in the Asia and the Pacific
urbanization, deteriorated ecosystem
region and strengthens cooperation in ac-
services, vulnerable livelihoods and technologies; quisition, analysis and database construction
inaccurate public perception of risk are •System-wide changes for integrated for urban water systems using ICT platforms,
elements that the IHP is trying to management approaches; among others. The UNESCO Office in Jakarta
address during its eighth phase, •Institution and leadership for has taken a leading role in defining urban
centred on ‘Water Security: beneficiation and integration; water management issues in Asia-Pacific in
Responses to Local, Regional and •Opportunities in emerging cities in collaboration with the Asia-Pacific Water
Global Challenges’. This is particularly developing countries; Forum (APWF).
pertinent as their impacts and related •Integrated development in rural
Africa
management costs are expected to human settlements.
In response to the need to establish guide-
increase due to global warming both in lines and charts for the design of hydraulic
frequency and magnitude. The UNESCO and Local Governments for structures in the Africa region, UNESCO-
Programme focuses on identifying Sustainability (ICLEI) have established IHP initiated the Review of Hydrological
appropriate and timely adaptation the Megacities Alliance for Water and norms for Climate Change Resilient Hydraulic
measures in a continuously changing Climate, a network of megacities that Infrastructures in Africa (RESIHYST-Africa)
environment. share experiences on climate change with the objective to obtain an ECCAS (Eco-
adaptation strategies for water services. nomic Community of Central African States)
Climate change and human impacts Within this framework, the publication, and an Economic Community of West African
on the sustainability of groundwater ‘Water Monographs’ that focuses on a
States (ECOWAS) directive on hydraulic
resources.
structure design tools.
selection of emblematic megacities of
1
Paris, London, Istanbul, Lagos, Mumbai, Beijing,
Manila, Tokyo, Chicago, New York, Mexico and Buenos
Aires.
269
UNESCO’s work in urban water

management is also carried out via a
number of related Chairs and Category 2
Centres around the world (Finland,
Islamic Republic of Iran, Mexico, Serbia,
Uruguay and United States).
URBAN WATER SERIES
UNESCO-IHP addresses fundamental

issues related to the role of water in cities
and the effects of urbanization on the
hydrological cycle and water resources
through its Urban Water Series. Focusing
on the development of integrated
approaches to sustainable urban water
management, the Series informs the work
of urban water management
practitioners, policy-makers and
educators throughout the world.
Examples of the Urban Series include:
• Urban Water Challenges in the Americas:

A perspective from the Academies of
Sciences, produced by IHP in
collaboration with the Water
Programme of the Inter-American
Network of Academies of Sciences
(IANAS) and the Global Network of
Science Academies. The book identifies
major problems and possible solutions
to the management of water resources
in the urban areas of 20 countries in the
Americas, and touches upon issues
linked to urban water supply and
sanitation management, access to safe
drinking water, wastewater
management, water-borne diseases in
urban areas, adaptation to climate
change and models, and concepts for
the improved management of urban
water.
• The Urban Water Cycle Processes and

Buenos Aires (Argentina)
© elnavegante/Shutterstock.com*
Interactions focuses on the scientific
understanding of the impact of human
activity on both the urban hydrological
cycle – including its processes and
interactions – and the environment
itself. Such anthropogenic impacts,
which vary broadly in time and space,
need to be quantified with respect to
local climate, urban development,
cultural, environmental and religious
practices, and other socio-economic
factors.
270
271
Through a series of 22 sub-regional maps, the atlas locates cities belonging to UNeSCO
networks around the world as presented in the ‘dossiers’ of the report: World Heritage
and Cities, UNeSCO Creative Cities Network, International Coalition of Inclusive and
Sustainable Cities – ICCar, Urban Biosphere reserves and the Megacities alliance for
Water and Climate (as of July 2016) and the Global Network of Learning Cities (as of
april 2016). It should be noted that the legend ‘World Heritage and Cities’ corresponds
to cities inscribed on the World Heritage List.
The names of the countries and cities displayed on the maps are those used by UNeSCO.
The regions displayed in the 22 maps correspond to the study areas identified in Part I
of the report.
The designations employed and the presentation of material in this section do not imply
the expression of any opinion whatsoever on the part of UNeSCO concerning the legal
status of any country, territory, city or area or of its authorities, or concerning the
delimitation of its frontiers or boundaries.
@ X-etra/Shutterstock.com*
272
ATLAS
273
WEST AFRICA
Benin, Burkina Faso, Cabo Verde, Côte d’Ivoire, Gambia,

Ghana, Guinea, Guinea-Bissau, Liberia, Mali, Niger,
Nigeria, Senegal, Sierra Leone, Togo
Cidade Velha
Bamako
Djenné
MALI
Koutiala
CABO Timbuktu
Dakar VERDE NIGER
Saint-Louis SENEGAL Agadez
Banjul
GAMBIA BURKINA
FASO
GUINEA-BISSAU Bogodogo
GUINEA BENIN
Cotonou
CÔTE TOGO
SIERRA LEONE D’IVOIRE NIGERIA
GHANA
LIBERIA
Abuja
Ibadan
Abidjan Kano
Grand-Bassam Lagos
Maféré Owerri
THE INTERNATIONAL COALITION OF INCLUSIVE AND SUSTAINABLE CITIES - ICCAR
THE UNESCO CREATIVE CITIES NETWORK (UCCN)
THE UNESCO GLOBAL NETWORK OF LEARNING CITIES (GNLC)
MEGACITIES ALLIANCE FOR WATER AND CLIMATE
274
CENTRAL AFRICA
Angola, Cameroon, Central African Republic, Chad,

Congo, Democratic Republic of the Congo,
Equatorial Guinea, Gabon, Sao Tomé and Principe
Afanloum Mayo-Baléo
Awaé Mayo-Darlé
Bafia Mbanga
Bafoussam Mbe
Bandjoun Mombo
Batié Monatélé
Bayangam Mouanko
Belel Mvengue CHAD
Dir Ngaoui
Dizangue Ngaoundal
Djohong Ngaoundéré
Douala Ngog-Mapubi
Ebolowa Njimom CENTRAL
Ebone Nkongsamba AFRICAN REPUBLIC
CAMEROON
Edéa Nyambaka
Edzendouan Obala
EQUATORIAL
Esse Olamzé
GUINEA
Evodoula Ombessa CONGO
Figuil Penja GABON
SAO TOMÉ
Fongo-Tongo Penka-Michel AND PRINCIPE Brazzaville
Garoua Pouma
DEMOCRATIC REPUBLIC
Guider Sangmélima
OF THE CONGO
Kon-Yambetta Santchou Kinshasa
Koutaba Tibati Lubumbashi
Logbadjeck Tignère
Manjo Touboro
Martap Yaoundé ANGOLA
Massangam Luanda
THE INTERNATIONAL COALITION OF INCLUSIVE ANd SUSTAINABLE CITIES - ICCAR
275
SOUTHERN AND SOUTH-EAST AFRICA
Botswana, Lesotho, Malawi, Mozambique, Namibia,

South Africa, Swaziland, Zambia, Zimbabwe
MALAWI
Blantyre
ZAMBIA Lilongwe
MOZAMBIQUE
ZIMBABWE Island of
Mozambique
Bulawayo
NAMIBIA BOTSWANA
Swakopmund
Windhoek
Ezulwini
Mbabane
SWAZILAND
SOUTH Maseru
AFRICA LESOTHO
Durban
Johannesburg
Mogale City
WORLd HERITAGE ANd CITIES
276
EAST AFRICA AND AFRICAN GREAT LAKES
Burundi, Comoros, Djibouti, Eritrea, Ethiopia, Kenya,

Madagascar, Mauritius, Rwanda, Seychelles, Somalia,
South Sudan, Uganda, United Republic of Tanzania
ERITREA Bomet
Chuka
Dodoma
Eldama
DJIBOUTI
Embu
Kabarnet
Kametto
SOUTH ETHIOPIA
SUDAN Karuri
Bahir Dar
Kigali
Harar Jugol
Kisumu
SOMALIA Kitale
UGANDA Hargeisa Kwale
Kampala
KENYA Lamu
Litein
RWANDA
Machakos
BURUNDI Malindi
Masaku
UNITED REPUBLIC Maua
OF TANZANIA Mbeere
Arusha Meru
SEYCHELLES
Dodoma Meru South
COMOROS Victoria
Moshi Muranga
Zanzibar
Mwingi
Nairobi
Nyahururu
MAURITIUS
Nyamache
Ol Kalou
Sothil
MADAGASCAR Tabaka
Thika
Trans-Mara
Final boundary between the Republic of Sudan and the Republic of South Sudan has not yet been determined.
277
NORTHERN AFRICA
Algeria, Egypt, Libya, Mauritania, Morocco,

Sudan, Tunisia
Iraq
TUNISIA
MOROCCO
LIBYA
Kuw
ALGERIA
Bahrain
EGYPT
Saudi
Arabia
MAURITANIA
SUDAN
Yem
Atar Casablanca Aïn Madhi Kairouan Ghadames Alexandria

Chinguetti Essaouira Algiers Sousse Aswan
Nouadhibou Fez Hammamet Tunis Cairo
Nouakchott Marrakesh Kais Giza
Ouadane El Jadida Mazouna Sharm El Sheikh
Oualata Meknes M’Zab
Tichitt Rabat Tamanrasset
Zouerate Tangier Timimoun Q
Tétouan Tlemcen
Final boundary between the Republic of Sudan and the Republic of South Sudan has not yet been determined.
278
NEAR EAST AND ARABIAN PENINSULA
Bahrain, Iraq, Jordan, Kuwait, Lebanon, Oman, Palestine,

Qatar, Saudi Arabia, Syrian Arab Republic, United Arab Emirates, Yemen
Ashur
Aleppo
Baghdad
SYRIAN Bosra
Beirut ARAB REPUBLIC Erbil
Damascus
Byblos LEBANON Samarra
Ras el Metn
IRAQ
PALESTINE Jerusalem
Tripoli Amman
Zahlé JORDAN KUWAIT Irbid
Salt
BAHRAIN Zarqa
Dilmun
Doha QATAR
UNITED ARAB EMIRATES
SAUDI
ARABIA Al-Ahsa
Jeddah
OMAN
YEMEN Sana'a
Shibam
Zabid
279
SOUTH-WESTERN EUROPE
Andorra, Italy, Malta, Monaco, Portugal, San Marino,

Spain, Vatican City (Holy See)
SAN
Alberobello Portovenere
MARINO
Assisi Ragusa
ITALY Bologna Rome
ANDORRA MONACO Caltagirone Sabbioneta
Campi Bisenzio San Gimignano
Vatican City
Catania San Lazzaro
VATICAN CITY di Savena
PORTUGAL Ґ+"ґ Crespi d'Adda
SPAIN Fabriano Santa Maria
Capua Vetere
San Marino Ferrara
Scicli
Florence
Siena
Genoa
Turin
Valletta Mantua
Urbino
MALTA Militello in Val
di Catania Venice
Modica Verona
Anadia Naples Vicenza
Alcalá de Dénia Santander
Angra do Henares Getafe Santiago de Noto
Heroismo Aranjuez Compostela Palazzolo
Granada
Cámara Ávila Segovia Pescara
Ibiza
de Lobos Seville Pianoro
Badalona Las Palmas de
Cascais Toledo Pienza
Baeza Gran Canaria
Elvas Úbeda
Barcelona Madrid
Évora Valencia
Bilbao Málaga
Gondomar Viladecans
Burgos Mahón
Guimarães Zaragoza
Cáceres Motril
Idanha-a-Nova
Colmenar Viejo Salamanca
Lagoa
Córdoba San Cristóbal
Mação de La Laguna
Cuenca
Óbidos
Oporto
Pampilhosa
da Serra
Praia de Vitória
280
SOUTH-EASTERN EUROPE
Albania, Bosnia and Herzegovina, Bulgaria, Croatia,

Cyprus, Greece, Israel, Montenegro, Serbia, Slovenia,
The former Yugoslav Republic of Macedonia, Turkey
SLOVENIA
Ljubljana
Mostar
Dubrovnik CROATIA BOSNIA AND HERZEGOVINA
Sarajevo
Split SERBIA
Trogir MONTENEGRO BULGARIA Nessebar
Plovdiv
THE FORMER YUGOSLAV REPUBLIC Sofia
ALBANIA OF MACEDONIA
Antalya
Kotor TURKEY
GREECE Eskişehir
Gaziantep
Istanbul
CYPRUS Safranbolu
ISRAEL
Berat Bitola Athens Nicosia Acre

Gjirokastra Čair Chorá Paphos Modi'in-Maccabim-Re'ut
Ohrid Corfu Tel Aviv-Yafo
Elefsina
Heraklion
Kordelio-Evosmos
Larissa
Lesbos
Rhodes
Samos
Serres
Trikala
Volos
MEGACITIES ALLIANCE FOR WATER ANd CLIMATE
281
WESTERN EUROPE 1
France, Ireland, United Kingdom of Great Britain

and Northern Ireland
Cork
Dublin
Galway
Limerick
UNITED KINGDOM
OF GREAT BRITAIN
IRELAND AND NORTHERN IRELAND
Aberdeen
Bath
Belfast
Bradford
Bristol
Dundee
Edinburgh
Glasgow FRANCE
Leicester
Liverpool
London
New Lanark
Newcastle upon Tyne
Norwich
Nottingham
Saltaire
St George, Bermuda Albi Gap Paris
Stoke-on-Trent Aubervilliers Grenoble Pontault-Combault
Swansea Bordeaux Le Havre Provins
Wolverhampton Carcassonne Lyon Saint-Denis
York Caudebec-lès-Elbeuf Metz Saint-Étienne
Cergy Montpellier Strasbourg
Clermont-Ferrand Nancy Toulouse
Clichy Nantes Villeurbanne
Dunkerque
Enghien-les-Bains
282
WESTERN EUROPE 2
Austria, Belgium, Germany, Liechtenstein,

Luxembourg, Netherlands, Switzerland
Apolda Leipzig
Bamberg Lübeck
Berlin Magdeburg
Amsterdam
Bonn Mannheim
Beemster Dudelange
Celle Munich
Philipsburg, Esch-sur-Alzette
Sint Maarten Cologne Nuremberg
Luxembourg
Rotterdam Darmstadt Offenbach
Willemstad Delmenhorst Pappenheim
Dortmund Potsdam
NETHERLANDS Erlangen Quedlinburg
Gelsenkirchen Regensburg
GERMANY Goslar Saarbrücken
Gunzenhausen Siegen
BELGIUM
Halle Soest
LUXEMBOURG Hamburg Weimar
Hanover Wismar
LIECHTENSTEIN AUSTRIA Heidelberg Wolfsburg
SWITZERLAND Herford
Anderlecht Ixelles Karlsruhe
Brugge Liège Kiel
Charleroi Ostend Kitzingen
Dour Quiévrain
Ghent Sint-Niklaas
Hensies Turnhout
Honnelles
Huy Basel Graz
Bern Linz
Geneva Salzburg
La Chaux-de-Fonds Vienna
Le Locle
Lausanne
Lucerne
St Gall
Winterthur
Zurich
283
CENTRAL EUROPE
Czech Republic, Hungary, Poland, Republic of Moldova,

Romania, Slovakia
Katowice
Krakow
Oswiecim
POLAND Toruń
Warsaw Český Krumlov
Zamość Kutná Hora
CZECH Prague
REPUBLIC
Telč
SLOVAKIA Třebíč
Banská Štiavnica
REPUBLIC Bardejov
HUNGARY OF MOLDOVA
Levoča
ROMANIA
Budapest Sighişoara Balti

Pécs
Siklosnagyfalu
284
NORDIC AND BALTIC EUROPE
Denmark, Estonia, Finland, Iceland, Latvia, Lithuania,

Norway, Sweden
Botkyrka Östersund
Eskilstuna Salem
Helsingborg Södertälje
Kalmar Stockholm
Karlskrona Trelleborg SWEDEN
Luleå Uppsala
ICELAND Lund Växjö
Malmö Visby
Reykjavík FINLAND
Bergen NORWAY
Oslo
Røros
ESTONIA
LATVIA
DENMARK
Sønderborg
LITHUANIA
Espoo Tallinn Kaunas Riga

Helsinki Tartu Vilnius Valmiera
Rauma
285
EASTERN EUROPE, CENTRAL ASIA AND CAUCASIA 1
Armenia, Azerbaijan, Belarus, Georgia, Kazakhstan,

Kyrgyzstan, Tajikistan, Turkmenistan, Ukraine, Uzbekistan
BELARUS
KAZAKHSTAN
Lviv UKRAINE
Melitopol
Bukhara
Dilijan GEORGIA UZBEKISTAN Itchan Kala
Gyumri ARMENIA AZERBAIJAN KYRGYZSTAN Samarkand
Sevan TURKMENISTAN TAJIKISTAN Shakhrisyabz
Sisian
Baku
286
EASTERN EUROPE, CENTRAL ASIA AND CAUCASIA 2
Russian Federation
RUSSIAN FEDERATION
Derbent
Kazan
Novgorod
Saint Petersburg
Ufa
Ulyanovsk
Yaroslavl
287
SOUTH ASIA

Maldives, Nepal, Pakistan, Sri Lanka
IRAN
(ISLAMIC AFGHANISTAN
REPUBLIC OF) Bamiyan
Kathmandu
PAKISTAN NEPAL BHUTAN
Phuentsholing
BANGLADESH Bagerhat
Dhaka
Golapgonj
INDIA
Karachi Tangail
Chandigarh
Jaipur
Balangoda
Bam Jhansi
Colombo
Behbahan Mumbai
Galle
Isfahan Varanasi
Gampaha
Kashan
Kandy
Rasht
SRI Kurunegala
Shahr-i Sokhta
LANKA Maharagama
Tehran MALDIVES
Matale
Yazd Male’ City
Matara
Negombo
Dotted line represents approximately the Line of Control in Jammu and Kashmir agreed upon by India and Pakistan.
The final status of Jammu and Kashmir has not yet been agreed upon by the parties.
288
EAST ASIA
China, Democratic People’s Republic of Korea,

Japan, Mongolia, Republic of Korea
Bucheon
Busan
MONGOLIA Daedeok
Dangjin-si
DEMOCRATIC PEOPLE’S Dongducheon
REPUBLIC OF KOREA Goyang
Gunpo
Gwanak-gu
REPUBLIC OF KOREA
Gwangju
CHINA JAPAN Gwangmyeong
Icheon
Iksan
Hamamatsu
Incheon
Kanazawa
Jeju
Kobe
Jeonju
Nagoya
Namyangju
Okayama
Osan
Sapporo
Lao People’s Democratic Republic Sangju
Sasayama
Seodaemun-gu
Ulaanbaatar Beijing
Thailand Viet Nam Shenzhen Tokyo
Seoul
Changzhou Shunde Tsuruoka
Siheung
Chengdu Suzhou
Suncheon
Hangzhou Taiyuan
Suseong
Jingdezhen BruneiWuhan Suwon
Jinze City
Tongyeong
Kaiping
Palau
Uijeongbu
Lijiang
Myanmar Yeonggwang
Macao
Yeonje-gu
Na
Darussalam Ping Yao
Yuseong-gu
Shanghai
Solomon
Islands
Cook Islands
MEGACITIES ALLIANCE FOR WATER AND CLIMATE
289
SOUTH-EAST ASIA
Brunei Darussalam, Cambodia, Indonesia,

Lao People’s Democratic Republic, Malaysia, Myanmar,
Philippines, Singapore, Thailand, Timor-Leste, Viet Nam
MYANMAR
Ľ"
!$!&
Luang Prabang
$ ($ Hanoi

Bangkok Hoi An
Lamphun CAMBODIA
Phnom Penh
Phuket " Balanga
Sakon Nakhon Makati
Sukhothai BRUNEI
Manila
MALAYSIA DARUSSALAM
Surat Thani George Town Vigan
Udon Thani Melaka
"!
Yala City
INDONESIA Bandung
Jakarta
Pekalongan
Surabaya
$!҃"$
Yogyakarta
Singapore
Vanuatu.
Australia
New Zealand
290
PACIFIC
Australia, Cook Islands, Micronesia (Federated States of), Fiji,

Kiribati, Marshall Islands, Nauru, New Zealand, Niue, Palau,
Papua New Guinea, Samoa, Solomon Islands, Tonga, Tuvalu, Vanuatu
P
Cambodia
!"Ґ !$ "$$" ґ MARSHALL

Malaysia PALAU ISLANDS
NAURU KIRIBATI
Bairiki, South Tarawa
Betio, South Tarawa
PAPUA
NEW GUINEA SOLOMON
ISLANDS
Honiara TUVALU
COOK SAMOA
ISLANDS Port Moresby
NIUE
VANUATU FIJI
TONGA
Levuka
Adelaide Suva
AUSTRALIA Belmont
Darebin
Hervey Bay
Maribyrnong
Melbourne
Melton
Port Phillip
Sydney
Yarra Auckland
Dunedin
NEW ZEALAND Wellington
291
NORTH AMERICA
Canada, United States of America
Aurora Oshawa
Belleville Ottawa
UNITED STATES Brooks Peel
OF AMERICA Burnaby Prince Albert
Caledon Prince George
Calgary Provost
CANADA Québec
County of Kings
Devon Red Deer
Drayton Valley Richmond Hill
Edmonton Saguenay
Fort Macleod Saskatoon
Gatineau Sault Ste. Marie
Georgina Sherbrooke
Grand Bank Saint-Albert
UNITED STATES Grande Prairie Saint John
OF AMERICA Halifax Saint-Justin
Hamilton Sudbury
Innisfail Tecumseh
Kentville Terrebonne
Kingston Thunder Bay
Lethbridge Toronto
Lions Bay Truro
Akron Dallas Little Rock San Leandro
London Vancouver
Allentown Detroit Los Angeles Santa Barbara
Longueuil Vaughan
Austin Dubuque Louisville Santa Fe
Lunenburg Victoria
Baltimore Durham Madison Santa Monica
Markham Wetaskiwin
Baton Rouge Elizabeth Memphis Seattle
Montreal Williams Lake
Beaverton Elk Grove New Orleans Spring Valley
Moose Jaw Windsor
Beverly Hills Eugene New York Syracuse
New Glasgow Winnipeg
Binghamton Evanston Niagara Falls Tacoma
Newmarket Wood Buffalo
Birmingham Fairfield Paducah Tucson
Oakville
Burlington Gary Philadelphia Union City
Cathedral City Hallandale Beach Phoenix West Sacramento
Charleston Houston Rochester Westland
Chester Iowa City Sacramento York
Chicago Knoxville San Bernardino
Columbus Lancaster San Francisco
292
CENTRAL AMERICA
Belize, Costa Rica, El Salvador, Guatemala, Honduras,

Mexico, Nicaragua, Panama
Campeche
Ensenada
Guanajuato
Mexico City
Morelia
Oaxaca MEXICO
Puebla
Santiago de Querétaro
San Cristóbal de las Casas BELIZE
San Miguel de Allende GUATEMALA HONDURAS
Tlacotalpan
Uxmal EL SALVADOR NICARAGUA
Zacatecas PANAMA
COSTA
RICA
Antigua Guatemala San Antonio del Monte Panama City Cantaranas

San Marcos San Salvador Renacimiento Copán
Santa Ana San Miguelito Jesús de Otoro
Santa Tecla Marcovia
San Isidro de Heredia Managua
Tegucigalpa
San José
THE UNESCO MAN ANd THE BIOSPHERE PROGRAMME (MAB) FOR SUSTAINABLE CITIES
293
THE CARIBBEAN
Antigua and Barbuda, Bahamas, Barbados, Cuba, Dominica, Dominican Republic,

Grenada, Haiti, Jamaica, Saint Kitts and Nevis, Saint Lucia,
Saint Vincent and the Grenadines, Trinidad and Tobago
Camagüey
Cienfuegos
Havana
Trinidad
BAHAMAS
Nassau
CUBA
Santo Domingo
Jacmel
HAITI DOMINICAN
Port-au-Prince REPUBLIC
ANTIGUA AND BARBUDA
JAMAICA
SAINT KITTS DOMINICA
AND NEVIS
Kingston SAINT LUCIA
BARBADOS Bridgetown
SAINT VINCENT AND THE GRENADINES
GRENADA
TRINIDAD AND TOBAGO
Port of Spain
294
SOUTH AMERICA
Argentina, Bolivia (Plurinational State of), Brazil, Chile,

Colombia, Ecuador, Guyana, Paraguay, Peru, Suriname,
Uruguay, Venezuela (Bolivarian Republic of)
VE,& Caracas

Ґ(! Coro
Bogotá !& &+
Cartagena
COLOMBIA ґ Georgetown
"&!
Medellín Paramaribo
Durán
Popayán Quito ECUADOR
Santa Cruz
Santa Ana de los
de Mompox
Ríos de Cuenca
Belém
Arequipa PERU BRAZIL Brasilia
Cuzco Contagem
BOLIVIA
Lima Curitiba
Ґ&!$
"$$ ґ Diamantina
La Paz Asunción Florianópolis
Potosí PARAGUAY Nandua Goiás
Sucre Pedro Juan Caballero Jaboatão
Ybycuí dos Guararapes
Olinda
Canelones Ouro Preto
URUGUAY
Cerro Largo Rio de Janeiro
Santiago CHILE Colonia del Sacramento Salvador de Bahia
Valparaíso Flores Santo André
!$
Florida Santos
Melo São Luís
Buenos Aires
Minas São Paulo
Mendoza
Montevideo Sorocaba
Morón
Paysandú
Rosario
Río Negro
Villa María
Rocha
295
ABBREVIATIONS
ADA Center for Architecture, Art and dialogue
ADB Asian development Bank
AECID Agencia Española de Cooperación Internacional para el desarrollo (Spanish Agency for International development
Cooperation and development)
ADER Agence pour la dédensification et la réhabilitation de la médina de Fès (Agency for the resettlement and rehabilitation
of the Fez medina)
AIMF Association international des Maires francophones (International Association of Francophone Mayors)
AKDN Aga Khan development Network
AKTC Aga Khan Trust for Culture
ALECSO Arab League Educational, Cultural and Scientific Organization
AREU Afghanistan Research and Evaluation Unit
ASEAN Association of Southeast Asian Nations
AU African Union
BIRUP Biosphere Integrated Rural Urbanization Programme
BRAC Bangladesh Rural Advancement Committee
BROT Build, rehabilitate, operate transfer
CACSA Central Asian Crafts Support Association
CAWI City for All Women Initiative, Canada
CCI Cultural and creative industries
CCMARD Canadian Coalition of Municipalities against Racism and discrimination
CEB Council of Europe development Bank
CERD Committee on the Elimination of Racial discrimination
CINARA Urban Water Management for Latin America and the Caribbean
CIS Commonwealth of Independent States
CIVVIH International Committee on Historic Towns and Villages
CoE Council of Europe
COMUS Community-Led Urban Strategies in Historic Towns
COP21 United Nations Climate Change Conference 2015
CP Creative placemaking
CRAterre Centre international de la construction en terre (International Centre on Earthen Architecture)
CTITF Counter-Terrorism Implementation Task Force
DCO district Coordination Office (Pakistan)
DTT democracy through Theatre (Former Yugoslav Republic of Macedonia)
EAHTR European Association of Historic Towns and Regions
ECCAR European Coalition of Cities against Racism
EEA European Environmental Agency
EIB European Investment Bank
ESD Education for Sustainable development
FAO Food and Agricultural Organization
FFA 2030 Education Framework for Action
FONSAL Fondo de Salvamento del Patrimonio Cultura (Cultural Heritage Rescue Fund, Quito)
GAPMIL Global Alliance for Partnerships of Media and Information Literacy
GCED GCI Global Citizenship Education Getty Conservation Institute
GDP Gross domestic product
GEFI Global Education First Initiative
GNH Gross National Happiness
GNLC UNESCO Global Network of Learning Cities
HDI Human development Index
HEREIN European Heritage Network
HTF Historic Town Forum
HUL Historic Urban Landscape
ICC International Criminal Court
ICCAR International Coalition of Inclusive and Sustainable Cities
ICCROM International Centre for the Study of the Preservation and Restoration of Cultural Property
296
ICHHTO Iranian Cultural Heritage, Handicrafts and Tourism Organization

ICLEI International Council for Local Environmental Initiatives
ICOMOS International Council on Monuments and Sites
ICRC International Committee of the Red Cross
IDB Inter-American development Bank
ISESCO Islamic Educational, Scientific and Cultural Organization
IFCD UNESCO International Fund for Cultural diversity
IFHP International Federation for Housing and Planning
IFLA International Federation of Library Associations and Institutions
IFLA International Federation of Landscape Architects
IFPO Institut français du Proche-Orient (French Institute of the Middle East)
IHCN Indian Heritage Cities Network
IHP International Hydrological Programme
ILO International Labour Organization
INTACH Indian National Trust for Art and Cultural Heritage
IOC-UNESCO Intergovernmental Oceanographic Commission of UNESCO
IOM International Organization for Migration
IP-EEWS International Platform on Earthquake Early Warning Systems
IREX International Research and Exchanges Board
IRTCUD International Research and Training Centre on Urban drainage
ISESCO Islamic Educational, Scientific and Cultural Organization
ISIS Islamic State of Iraq and the Levant
ISOCARP International Society of City and Regional Planners
ITRHD Indian Trust for Rural Heritage and development
ITUC Integrated Territorial and Urban Conservation
IUAV Instituto Universitario di Architettura di Venezia (University Institute of Architecture of Venice)
IUCN International Union for Conservation of Nature
JESSICA Joint European Support for Sustainable Investment in City Areas
JVF Jaipur Virasat (Heritage) Foundation
KAICIID King Abdullah bin Abdulaziz International Centre for Interreligious and Intercultural dialogue
LGBTQ Lesbian, Gay, Bisexual, Trans and Queer
LVF Land value finance
MAB UNESCO Man and the Biosphere Programme
MCR UNISdR’s Making Cities Resilient Campaign
MDG Millennium development Goals
MDG-F Millennium development Goals Achievement Fund
MIT Massachusetts Institute of Technology
MOST Management of Social Transformation Programme
MoU Memorandum of Understanding
MUPANAH Musée du Panthéon National Haïtien
NEA National Endowment for the Arts (United States of America)
NGO Non-governmental organization
NRC National Railway Corporation (Nigeria)
NTUA National Technical University of Athens
ODI Overseas development Institute
OECD Organisation for Economic Co-operation and development
OHCHR Office of the High Commissioner for Human Rights
OIE Organization of Ibero-American States
OIF Organisation Internationale de la Francophonie (International Francophone Organization)
OSF Open Society Foundation
OWHC Organization of World Heritage Cities
PDSEC Plan for Economic, Social and Cultural development
PPP Public-private partnership
PUCE Pontificia Universidad Católica del Ecuador (Pontifical Catholic University of Ecuador)
297
RCUWM Regional Centre on Urban Water Management

RIFF Rajasthan International Folk Festival (India)
SAARC South Asian Association for Regional Cooperation
SCI Samara City Institute (Russian Federation)
SDL Société de développement local (Local development company) (Morocco)
SEWA Self Employed Women’s Association
SHCC Small Historic Coastal Cities
SIDS Small Island developing States
SME Small and medium-sized enterprises
SOHSA Saving Our Heritage - Saving Ourselves (Tajikistan)
UCLG United Cities and Local Governments
UDF Urban development funds
UDRI Urban design Research Institute (Mumbai)
UIA International Union of Architects
UN DESA United Nations department of Economic and Social Affairs
UN ESCAP United Nations Economic and Social Commission for Asia and the Pacific
UNAOC United Nations Alliance of Civilizations
UCCN UNESCO Creative Cities Network
UNCDF United Nations Capital development Fund
UNDAF UN development Assistance Framework
UNDP United Nations development Programme
UNFPA United Nations Population Fund
UN-Habitat United Nations Human Settlements Programme
UNHCR United Nations High Commissioner for Refugees
UNICEF United Nations Children’s Fund
UNIDO United Nations Industrial development Organization
UNIDROIT International Institute for the Unification of Private Law
UNISDR United Nations Office for disaster Risk Reduction
UNITAR United Nations Institute for Training and Research
UNITWIN University Twinning and Networking Programme
UNODC United Nations Office on drugs and Crime
UNOSAT United Nations Institute for Training and Research Operational Satellite Applications Programme
UNU-GCM United Nations University Institute on Globalization, Culture and Mobility
UN Women United Nations Entity for Gender Equality and the Empowerment of Women
UNWTO United Nations World Tourism Organization
UWC United World College
UWMP Urban Water Management Programme
VVUF Viet Village Urban Farm
WB World Bank
WCED United Nations World Commission on Environment and development
WDC World design Capital
WHEAP World Heritage Programme on Earthen Architecture
WHITR-AP World Heritage Institute of Training and Research for the Asia and the Pacific Region
WHO World Health Organization
WNBR World Network of Biosphere Reserves
298
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303
GLOBAL REPORT on CULTURE for SUSTAINABLE URBAN DEVELOPMENT
As the cornerstone of society, culture must lie at the heart
of sustainable policies and strategies. Yet, despite its
vital importance, key questions such as: ‘How has culture
influenced urban development across the world?’ and
‘How can culture make a difference to our urban future?’
have often remained unexplored.
This Report, the first of its kind, explores the role of

culture for sustainable urban development. It is intended
as a policy framework document to support governments
in the implementation of the 2030 Agenda for
Sustainable Urban Development and the New Urban
Agenda.
CULTURE: URBAN FUTURE

In search of a common thread between the past and the
future, the Report examines the contribution of culture
to urban sustainability from two analytical angles: a
global survey implemented with nine regional partners
across the world; and key thematic insights. The Report
thus analyses the situation, trends, threats and existing
opportunities in different regional contexts, and presents
a global picture of urban heritage safeguarding,
conservation and management, as well as the promotion
of cultural and creative industries, as resources for
sustainable urban development. The Report also includes
a set of maps and a section on UNESCO’s strategic
networks reflecting the Organization’s various fields
of competence.
Building on the findings of this global research and

thematic reflection, the Report presents new guidelines
and recommendations, rooted in culture, to ensure that
the cities of tomorrow are safe, inclusive, resilient and
sustainable.
UNESCO collaborated with National Geographic

photographer REZA, who contributed to the visual
identity of the Report through a selection of
photographs reflecting the manifold role of culture
in cities all over the world.
A philanthropist, architect by training and an

internationally-renowned photojournalist, REZA is
also committed to training people in visual media
and communications, particularly in the Global South.
REZA is an Explorer and Fellow of the National
Geographic Society and Senior Fellow of the Ashoka
Foundation. He has been awarded numerous prizes,
9 789231 001703 including the prestigious World Press Photo Award
and the Infinity Award.
Sustainable The Webistan photo agency ensures the dissemination

Development of the photographic work of REZA, and facilitated his
Goals United Nations Sustainable collaboration for this Report.

Global Report On Culture For Sustainable Urban Development

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CULTURE :

United Nations Sustainable

HERITAGE AND CREATIVITY

2030 AGENDA CULTURE

STUDY AREA 3 STUDY AREA 7

STUDY AREA 4 STUDY AREA 8

CULTURE FOR PEOPLE ENVIRONMENT POLICIES

GLOBAL REPORT Enhance the liveability of cities and safeguard

United Nations Sustainable

Printed by UNESCO, Paris (France)

This work is dedicated to the memory of Ron van Oers (1965-2015),

With over half of the world’s population now living in urban

areas, the road to sustainable development passes through

2007 represented a landmark moment for our planet, as it

Jesús Manuel Gracia Aldaz

The city of Hangzhou is honoured to present this preface

to the UNESCO Global Report on Culture for Sustainable

PART I Global survey on the role of culture for

STUdy area 7 Canada, United States of America

PART II Culture for sustainable cities:

CONCLUSIONS AND RECOMMENDATIONS

DOSSIERS UNeSCO’s networks for sustainable urban development 247

LIST OF CASE STUdIES

69. Shanghai (China) 87. Ballarat (Australia) 106. Riga (Latvia)

94. Saint-Louis (Senegal)

CULTURE: key resource

Today, for the ﬁrst time in history, humanity is predominantly an urban

In 2015, with the adoption of the 17 United Nations’ Sustainable

Building on several decades of advocacy and operational programmes

TARGETS OF SUSTAINABLE DEVELOPMENT GOAL 11:

CULTURE, DEVELOPMENT AND CITIES

CULTURE IN THE AGE OF URBANIZATION: A TOOL FOR POVERTY REDUCTION AND

THE INTERSECTION OF CULTURE AND GLOBALIZATION

INCREASED DIVERSITY OF CITIES

CITIES AS CONTESTED SPACES

UNESCO’S ROLE IN SUSTAINABLE URBAN DEVELOPMENT

RECOMMENDATION ON THE HISTORIC URBAN LANDSCAPE (extracts)

UNESCO’S GLOBAL REPORT: METHODOLOGY AND STRUCTURE

The Report consists of the following sections:

GLOBAL SURVEY ON THE ROLE OF CULTURE FOR

Coordinator of the regional study: ARTERIAL NETWORK

Created on Gorée Island (Senegal) in 2007, Arterial Network is a non-

Recognizing critical development challenges, notably access

In African cities marked by recently urbanized populations

Urban development strategies have often disregarded the

Lamu (Kenya) SOM

mitigating the social and Urbanization accelerated in post-colonial times,

place in half the time it took Europe and North America to

Saint Louis (Senegal)

The encroachment of urbanization also entails a loss of

gentriﬁcation. Although a tourism-based economy has

CULTURE IN AFRICAN CITIES:

African cities are marked by growing inequalities. Spatial

continuous neglect of the city’s monumental sites Unravelling the legacy of

apartheid through SOUTH AFRICA

especially when heritage is perceived as a vestige of CASE STUDY 4 ALGERIA

Fostering ownership and a sense of belonging is therefore

a complex but essential endeavour. As most urban

as places of transit, rather than of cultural memory. As