Using the elaboration of the World Heritage management plan as a space for dialogue

The process for the elaboration of the new management plan for the World Heritage property started in 2017, and several groups have been working on it for three years (2017-2020). The World Heritage Management Board is leading the process, with the collaboration of the cultural heritage manager in Røros, the representative of Sámi Indigenous people, urban planners from the different municipalities and counties within the World Heritage property and buffer zone, and the Director of the Museum of Røros. Hearings and meetings with the municipality boards in the 5 municipalities have been used for establishing this dialogue. More than 40 different parties were invited to the hearings including the counties, municipalities, museums, NGOs, persons involved in the Management Plans, private owners of land within the World Heritage property, and the Sámi Parliament. The Sámi were involved in the same way as the other stakeholders, and counting with representatives both in the World Heritage Board and in the administrative group.

  • The government requested to all Norwegian World Heritage sites to develop new management plans.
  • The World Heritage Coordinator was in charge of drafting the former management plan (2010) and had the will and mission to develop a new management plan for Røros.

1) During the hearing of the new Management Plan, many of the parties mentioned that the Sámi culture should be strengthen more than it already was. Most of the suggestions of the different parties were to focus more on reinforcing the Sámi relations and values.

2) Reinforcing the idea to include the Sámi culture as part of the Outstanding Universal Value of the World Heritage site in the next years. Yet, the State Party needs to lead the process. Some municipalities want that some areas currently in the buffer zone (part of the Circumference) be integrated in the World Heritage property (Narjodet, agricultural area, and Dragås-Eidet, which is one of the melters outside Røros).

3) In order to work equally with different parties, there has been no special treatment for none of the stakeholders.

4) To integrate the different stakeholders feedback into the management plan, hearings were organized to consult about the arrangements for drafting the plan and later to consult on the plan itself. 

Integrating Indigenous people's perspectives in the interpretation of the heritage place

The place where to learn about Røros and the Circumference is the Museum. The Røros museum consists of five main sections, one dedicated to the buildings of Røros, one dedicated to the Sámi culture, one dedicated to nature conservation management, one to mining and quarrying and one to the World Heritage. A permanent position as Sámi researcher was established in 2001. The establishment of the Museum as the World Heritage centre of Røros and the Circumference in 2017, allowed the enlargement of the World Heritage narrative to the Sámi relationship to the place already existing in the museum. In this space, it is clarified that the Sámi were in the area before the copper-works started. The sami community has existed through history on its own terms but also in interaction with the society around the copper-works. Interaction could be based on trading with reindeers, with handicraft, withreindeer-skins, or as hosts for reindeers that were owned by people who owned the copper-work, tradesmen and farmers. The landscape of the Circumference has been to some extend also shaped in relation to the reindeers, and Sámi managed this relationship in a sustainable way.

  • Collection on Sámi culture (i.e. objects, visual archive) already existing in the Museum
  • In 2012, it was decided by the Norwegian Parliament that all World Heritage properties shall have a World Heritage centre. 
  • In 2017, the Røros Museum started working as the World Heritage centre of Røros and the Circumference. 

It was a long process to find the financing for the World Heritage centre of Røros. There are only two persons engaged specifically for the World Heritage centre function at the Museum, even though the whole museum works in some way, as a World Heritage centre. In order to finance these two persons and their activities, the State provides 60%, the counties 20% and the municipalities 20%. Regional financing for that last 40% needed to be arranged and consented by all local parties.

Indigenous people’s representative at the World Heritage Management Board

The World Heritage Management Board was established in 2012 and is composed of 8 members representing the main stakeholder groups in the World Heritage property: 5 mayors of the 5 municipalities - Røros, Tolga, Holtålen, Engerdal and Os-, 1 representative for each of the 2 counties - Trøndelag and Innlandet (regional level)- and 1 representative of the Sámi Parliament. The chair holds the role for 2 years and can be re-elected. The World Heritage coordinator acts as the Secretary of the board. Besides, there are 6 observers: the Director of Destination Røros, the Director of the Røros museum, the Director of Nord-Østerdal Museum (3 municipalities), the Director of Røros Municipality, the Cultural Heritage manager of Røros and the site manager of the Femundsmarka National Park who represents both national parks and the governors of the 2 counties. The board has regular meetings (4-5 times a year) and excursions where they process cases proposed by the coordinator, by the members themselves and by other stakeholders. The management plan, budget, new proposals to strengthen the values in the site, national and international collaboration and hearings of different suggestions from the directorates and departments are discussed. The decisions are taken by consensus.

The Femundsmarka National Park, located within the Circumference area, counted with a representative of the Sámi Parliament in their own board. This was a model for the World Heritage Management Board. Besides, in 2018, Røros municipality became a management area for Sami language, which also reinforces the importance of the representation of Sámi people in the decision-making processes of the World Heritage site.

1) The selection of the Sámi representative is done by the Sámi Parliament. This  is important to strengthen the authority and the links to the parliament.   

2) The participation of a Sámi representative in the board has influenced in how the new World Heritage  management plan is more inclusive of Sámi culture. This is supported by the administration and the politicians  in the counties, in the municipalities and in the museums  who were very aware of the question about how the Sámi culture should be featured in the current process around the management plan. 

3) The Sámi representative has become a focal point for Sámi questions.

Using Biosphere Reserve Branding (Quality Economy)

Quality economy is based on successful conservation or conservation-based economy set up in the guidelines of Vietnam MAB in 2009. Labeling and branding goods and services from CBR could help promote the development of quality economies in the CBR and its sustainable development. In the context of economic development in CBR, quality includes value creation and increased economic benefits for local people consumptions; production in line with sustainable development; fair distribution, solidarity; awareness of conservation of nature and culture and networking among Bisophere Reserves. Successful conservation creates a prestige value. Labeling under this concept brings added value to local products creating a contribution and recognition to local communities and their efforts in conservation.

International designation as a Biosphere Reserve.

(1) Market sector consists of private entities that are organized around price incentive in the production and consumption of goods and services. The quality of products should be controlled and registered.

(2) Local products usually do not meet quality criteria, therefore, intersectoral coordination and quality economy should come together to implement the initiative with community participation involved in the process.

Understanding different scales of interactions between natural and cultural systems using the System thinking approach

System thinking is a scientific approach that starts with the whole. It is used for the design of individual biosphere reserves but also for connecting it to the whole international network. It takes into account complex relationships as well as “soft” variables that underpin human emotions, motivation and behavior thus providing a holistic approach to complex policy and social issues. From this perspective, biosphere reserves consist of various components which reflect complex relationships between natural and socio-economic factors, between physical structures and human values, between cultural space and natural landscape, political ecology and creative ecology. The application of system thinking is carried out from the preparation stage of nomination of a biosphere reserve to design, management planning and implementation. Applying system thinking to the design of a biosphere reserve allows to identify all elements of the larger ecosystem. In the case of CBR, this approach enables the connection between the ancient town, influential to the development of the whole ecosystem as a historic port and its cultural heritage in relation to the marine protected area.

In CBR, the ecological interconnection between the heritage city and the protected area were clear and the design had to consider the interface of the estuary between the cultural systems (settlements) along Thu Bon River, the mangroves and the sea.

(1) System thinking is a tool for managers and policy makers to outline appropriate solutions to practical problems.

(2) System thinking differentiates fundamental problems from their symptoms and facilitates both short-term interventions and long-term sustainable strategies.

Coordinating body for multiple international and national designations

The CBR Management Board coordinates all activities that are related to the cultural and natural values of the Biosphere Reserve. In the development procedure, the CBR tries to create a safe place for stakeholders to work together and find out integrated solutions. One of the main tasks of the CBR Management Board is to coordinate the different international and national designations which include the Biosphere Reserve, the World Heritage site, the intangible cultural heritage, and the marine protected area. The master plan and implementation program of the CBR is always in the making, being updated and coordinated with stakeholders including the four main entities: government, scientists, private sector and local people. The majority of the leaders in the city were invited to be members of the management board of the CBR. This is an important characteristic of the system that serves to facilitate the collection of information and data, to discuss and to reflect at workshops and meetings, to analyze problems, and to find out solutions thereon. All of the CBR coordinators are responding to the balance between conservation and development, focusing on sustainable development and resilience to climate change.

  • The CBR has created a good relationship with local communities and stakeholders working together on conservation, livelihood development, eco-tourism and education becoming a space for system thinking, reflections on linkages with nature, and harmonization between humans and the biosphere.
  • The existence of multiple designations such as the World Heritage designation, the Marine Protected Area (MPA) designation, and the Intangible Cultural Heritage designation call the attention of locals, authorities and tourists.

With so many different designations at different levels, there are several approaches that are required to be integrated and coordinated in the action plans such as the ecosystem approach, watershed approach, integrated coastal management and the ridge to reef (2R) approach in order to develop management models. For example, the Quang Nam province has assigned 19 of 235 hectares of Cù Lao Chàm MPA area for the local fishermen in Bai Huong village to manage the marine resources and develop eco-tourism based on the conservation results since 2013. This is a shared decision-making process that includes the government, the local communities and other stakeholders. The local fishermen created the resources management plans by themselves. Using this system thinking, the local partners will be real owners of the natural and cultural resources. They are decision-makers in the maintenance of the values of the Biosphere Reserve for the future generations.

Re-cultivating urban fields with traditional crops

Uncultivated land was used to establish a Heritage Garden with endemic plants and to re-cultivate liquorice. Europe-wide trade in seeds and liquorice root once formed a significant part of the local economy. The plant was used for medical purposes and as a sweetener. However, liquorice root from Bamberg lost its competitiveness during the 1960s. Correspondingly, the knowledge about cultivating, harvesting and processing liquorice has diminished. The Liquorice Society is committed to the re-cultivation of the plant and tries to reconstruct methods of harvesting and processing. International competitiveness no longer plays a role today. The liquorice root is now a connoisseur product for tourists.

  • Committed individuals: one of them owns a piece of land; others are interested in gardening, however, don’t have a garden to themselves.
  • Available land.

The commitment needs to be maintained beyond the initially funded period: positive media feedback as well as experiencing the community of like-minded people inspired continued commitment.

Development of a brand for local produce

An interest group of 19 market gardeners was initiated by the World Heritage Office. It holds joint activities such as the annual ‘Day of Open Market Gardens’ and publishes buyer’s guides for local produce. This consortium of gardeners is coordinated by a caretaker financed by the National Investment Programme for World Heritage (2009-2013) and the gardeners, respectively. The consortium has its own logo, which was commissioned several years ago and reads ‘Gutes aus der Gärtnerstadt’ (Good produce from the Market Gardeners’ District).

  • Collaboration between gardeners to exchange market knowledge. 
  • Finances for brand development (National Investment Programme for World Heritage).
  • Coordination: Through a joint platform (https://www.gaertnerstadt-bamberg.de/), the gardeners present their range of products and services; regular meetings serve to prepare the annual Open Day of Market Gardens and to initiate other projects.
  • The horticultural products (vegetables, shrubs, herbs, flowers) vary from market gardener to market gardener. This reduces the competition between them.
  • Explain added value of concerted action/a joint brand.
  • A marketing expert has explored the strengths and weaknesses of the Market Gardeners’ District as a shopping place and tailored a communication concept that was applied thereupon. It is based on the tradition of the gardeners’ families and on the unique varieties of fresh, nutritious produce. Local pride and the consumers’ green conscience to reduce their “foodprint” by purchasing food that was grown within their community also work as a selling point.
Intergenerational approach to raising awareness for historical urban gardens’ value

While urban gardening is very much on vogue around the globe, Bamberg’s Market Gardeners’ District still stems from the Middle Ages and has not been abandoned to build residential properties like in Bath (UK) or Istanbul (Turkey). International researchers and tourists are attracted by this uniqueness alike. The local population on the other side take this fact as a given. The World Heritage Office intensively communicates national and international interest in Bamberg’s uniqueness to raise awareness for the protection of the local gardening tradition. Several documentaries about the Bamberg’s Market Gardeners’ District produced by the Bavarian State TV have strengthened the local identity and people’s pride in the gardening tradition. The international delegations that regularly visit Bamberg to experience the unique Market Gardeners’ District also contribute to the awareness concerning the value of this heritage.

In several families, the next generation has taken over the gardening business. Some of those young people even have a seat in the City Council to ensure that the interests of gardeners are heard in the political arena.

In Bamberg, every school child now visits the Market Gardeners’ District at least once to learn about food production on site.

  • Existing market gardens following historical traditions
  • National and international interest in urban gardening
  • Media coverage of urban gardening
  • Interested teachers and enthusiastic kids at local schools
  • Make sure you don’t use local gardeners to appear in the media, but give credit to their knowledge and their skills
  • Assist with film production to not waste gardeners’ time
  • Approach teachers proactively
Multi-level partnership (municipality, owners, associations, citizens' groups)

In view of the heterogeneous ownership structure in the Market Gardeners’ District, the establishment of partnerships was time-consuming. Representatives from the Municipality and its subsidiaries (e.g. City Works for water supply) had to be brought to the table together with gardeners, land owners, associations (such as the Heritage Garden or the Licorice Society) and garden lovers. The municipality approached the corresponding stakeholders in writing, by phone and organized several meetings. Privacy concerns of residents had to be carefully addressed while finding adequate uses for uncultivated land. In one case, the building of trust recently even resulted in the conversion of an abandoned nursery into a community center, where cultural events, cooking classes and exhibitions are held.

  • Bavarian State Garden Show held in Bamberg in 2012 that has drawn the attention of the public to Bamberg's gardening tradition
  • Broad interest in local food production
  • Governmental funding with the National Investment Programme for World Heritage (2009-2013)
  • Early stakeholder involvement is crucial: The participatory process must start with the development of measures not only when it comes to distributing tasks.
  • Changes take time: People naturally resist change. Humans prefer the comfort of familiarity over the anxiety that comes with the unknown. Therefore, sufficient time needs to be planned for to involve stakeholders and get them mentally attuned to the project. The idea is not to eliminate resistance. This is not possible. Instead focus on allowing people to express their issues – sometimes people just need to be heard.
  • Communication is key: Make sure you provide all stakeholders with relevant information about the project in time. Depending on rumors destroys the basis of trust.