ICOMOS–ICCROM

GUIDANCE

ON
POST-DISASTER AND POST-CONFLICT
RECOVERY AND RECONSTRUCTION

FOR
HERITAGE PLACES OF CULTURAL
SIGNIFICANCE AND WORLD HERITAGE
CULTURAL PROPERTIES
 ICOMOS-ICCROM GUIDANCE

ON

POST-DISASTER AND POST-CONFLICT

RECOVERY AND RECONSTRUCTION

FOR

HERITAGE PLACES OF CULTURAL

SIGNIFICANCE AND WORLD
HERITAGE CULTURAL PROPERTIES

ICOMOS (International Secretariat, Paris) and ICCROM (Regional Office, Sharjah)

Published by ICCROM (Regional Office, Sharjah) and ICOMOS (International Council of Monuments and Sites).

All rights reserved.

© ICCROM and ICOMOS, 2023
ISBN 978-92-9077-342-9

This publication is available in Open Access under the Attribution-NonCommercial-ShareAlike 4.0

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the content of this publication, the users accept to be bound by the terms of use of any future ICCROM
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The designations employed and the presentation of material throughout this publication do not imply the
expression of any opinion whatsoever on the part of ICCROM and ICOMOS 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 ICCROM and ICOMOS and do not commit the Organizations.

ICOMOS - ICCROM Joint Committee on ICCROM-Sharjah

“Guidance on Post-disaster and Post-conflict P.O. BOX 48777, Sharjah
and Recovery and Reconstruction”: United Arab Emirates
Lead Authors: Tel: +971 (0)6 555 2250
- Luisa De Marco (Scientific coordinator) Email: [email protected]
- Amra Hadzimuammedovich www.iccrom.org/athar
- Loughlin Kealy
ICCROM
Main Contributors/ Experts: Via di San Michele
- Naseer Arafat 13 I-00153 Rome
- Zaki Aslan Italy
- Catherine Forbes Tel: +39 06 585-531
- Marie Laure Lavenir Email: [email protected]
- Jonathan E. Nsubuga www.iccrom.org
- Rohit Ranjitkar
- Renata Schneider ICOMOS International Secretariat
- Susan Denyer 11 rue du Séminaire de Conflans
94 220 Charenton-le-Pont
Institutional Project Management/ Coordination: France
- Zaki Aslan Tel: 33 (0) 1 41 94 17 59
- Marie Laure Lavenir Email: [email protected]
- Rania Omar https://icomos.org

Acknowledgements: Graphic design: Mohammed Irqsosy

ICOMOS-ICCROM Joint Committee would like Cover image: Bayt Beirut museum and
to thank and express its utmost gratitude to all urban cultural center. (Source: Zaki Aslan).
ICOMOS and ICCROM experts, who commented
on the draft versions of this work. Special
thanks go to: Rohit Jigyasu; Toshiyuki Kono;
Teresa Patricio; Nancy Pollock-Ellwand; Aparna
Tandon; and Kai Weise.
 ICOMOS–ICCROM GUIDANCE | 03

Foreword
The scale, persistence and nature of destructive events of recent times have heightened awareness
of the vulnerability of cultural inheritance – heritage places of significance and World Heritage
properties across the world are under threat. The concern of the World Heritage Committee and
that of other international bodies active in the field of cultural heritage protection is focused on
the resulting challenges for recovery and possible reconstruction. These challenges have reinforced
the commitment by international organisations and local populations to the common purpose of
preserving and transmitting places of significant cultural value to future generations.

In 2015 the World Heritage Committee emphasised the importance of ‘a post-conflict strategy for
reconstruction of damaged World Heritage’. The means to be considered would include technical
assistance, capacity-building, and the exchange of good conservation and management practices.
In 2016 the Committee tasked the Advisory Bodies with developing guidance on the reconstruction
of such properties. A range of initiatives has emerged to address different aspects of the challenges
posed. This Guidance document builds on the initiatives of ICOMOS and ICCROM and those of other
bodies, and extends the collaboration of the ICOMOS–ICCROM Project ‘Analysis of Case Studies
in Recovery and Reconstruction’, published in 2021. In this regard, we want to express our sincere
gratitude to all colleagues, including ICOMOS former President Toshiyuki Kono, who worked on
these seminal initiatives and commented on the draft versions of this new work.

This document relates to issues of reconstruction within the processes of post-trauma recovery.
In full realisation of the many dimensions of trauma and recovery, the Guidance relates to the
concerns of the cultural heritage field generally and specifically those of World Heritage properties.
It acknowledges the particular challenges for those places where action is required to give back
homes to people, and where heritage might be an agent of human-rights-based social and
economic recovery. It asserts the need to integrate cultural heritage protection within the broad
framework of post-trauma recovery actions and across the spectrum of issues encountered.

Where World Heritage properties are concerned, reconstruction brings into focus the attributes that
convey Outstanding Universal Value (OUV). At the same time, it is expected that the framework
set out in the document may have wider application and may assist damaged heritage places in
identifying a wide spectrum of possibilities for their future recovery.

The experiences of the recent past have also drawn attention to the increasing threat to societies
and their cultural heritage that is posed by climate change. It is hoped that this document may also
stimulate continuing attention to the deep challenges posed to conventional approaches to the
protection and transmission of this inheritance.

For ICOMOS, For ICCROM,

Teresa Patricio, President Webber Ndoro, Director General
Marie-Laure Lavenir, Director General Zaki Aslan, ICCROM-Sharjah Director
04 | ICOMOS–ICCROM GUIDANCE

TABLE OF CONTENTS

INTRODUCTION 7

The Guidance: Aim, purpose, scope, target audience, structure 8

Aim 8
Purpose 8
Scope 8
Target audience 8
Structure of the Guidance 8
Updates 9

Key Concepts 9

Recovery 9
Reconstruction 9
Trauma 9
Resilience 10
Building back better 10

Principles for a Sustainable Recovery Process 11

Recovery of cultural heritage vs general recovery processes 12

Scope and scale of recovery of cultural heritage 12
Heritage recovery vs significance of heritage places/OUV of
World Heritage properties 12
Context-attentive recovery 12
Value-based recovery 12
Inclusive, participative and people-centred recovery 13
Sustainable, resilient and risk-informed recovery 13
Heritage recovery vs current and future risks 13
 ICOMOS–ICCROM GUIDANCE | 05

GUIDANCE FRAMEWORK 15

1. Heritage Factors 15

Documentation of the heritage place prior to the catastrophic event 16

Documentation of catastrophic events 18
Actions for recovery planning 20

2. Organisational Factors 42

Identification of actors 42
Coordination and engagement of actors 42
Linkage with broader recovery strategies 44
Clarity of operational responsibilities 45
The deployment of expertise and skills 46
Effective use of resources 47
Capacity building 49

3. Outcomes: Disaster Risk Reduction and Sustainable Recovery 51

Risk assessment and disaster recovery planning 54

Communication platforms and protocols 56
Embedding cultural heritage protection 56
06 | ICOMOS–ICCROM GUIDANCE

List of Illustrations

Fig. 1 Temple of Nuestra Señora de la Asunción of Santa María Acapulco, San Luis Potosí, Mexico
Fig. 2 Duomo, Venzone, Italy
Fig. 3 Patan, Nepal
Fig. 4 Kasubi Tombs, Uganda
Fig. 5 Patan, Nepal
Fig. 6a–6b Palazzo Carli Benedetti, L’Aquila, Italy.
Fig. 7 Nablus, Palestine
Fig. 8 Patan, Nepal
Fig. 9 Sevri Hadzi mosque, Mostar, Bosnia and Herzegovina
Fig. 10 Patan, Nepal
Fig. 11 Christchurch, New Zealand
Fig. 12 Patan, Nepal
Fig. 13 Christchurch, New Zealand
Fig. 14 Palazzo Carli Benedetti, L’Aquila, Itay
Fig. 15 Sevri Hadzi Hasan Mosque, Mostar, Bosnia and Herzegovina
Fig. 16 Christchurch, New Zealand
Fig. 17 McLean’s Mansions, Christchurch, New Zealand
Fig. 18 Patan, Nepal
Fig. 19 Patan, Nepal
Fig. 20 Duomo, Venzone, Italy
Fig. 21 Sevri Hadzi mosque, Mostar, Bosnia Herzegovina
Figg. 22a-22b Duomo, Venzone, Italy
Fig. 23 Temple of Nuestra Señora De La Asunción, San Luis Potosí, México
Fig. 24 San Pedro de Alcántara, O’Higgins Region, Chile.
Fig. 25 Xuenzai Bridge, Taishun County, Wenzhou City, Zhejiang Province, China
Fig. 26 Kasubi Tombs, Uganda
Fig. 27 San Pedro de Alcántara, O’Higgins Region, Chile
Fig. 28 Temple of Nuestra Señora De La Asunción, San Luis Potosí, México
Fig. 29a-29b Palazzo Carli Benedetti, L’Aquila, Italy
Fig. 30 Wachau Cultural Landscape, Austria
Fig. 31 Palazzo Carli Benedetti, L’Aquila Italy
Fig. 32 Duomo, Venzone, Italy
 ICOMOS–ICCROM GUIDANCE | 07

Introduction
Experience has shown that loss and damage to cultural Integrating the recovery of damaged heritage places
heritage arising from catastrophes cause or exacerbate within general recovery processes is crucial for sound
personal and social trauma.1 Often the trauma caused by and lasting post-event recovery processes. Hence, to
that loss is also the first trigger for pursuing the physical ensure that the recovery of heritage places can be
reconstruction of damaged or destroyed heritage places. integrated into those larger processes, this Guidance
Guidance for the recovery of cultural heritage is needed, also makes reference to guiding documents related to
and this document addresses that need. broader post-event recovery.

This Guidance document is not intended to be In addressing the recovery and reconstruction of heritage
prescriptive. It is not a manual nor a toolkit. Rather, places, the Guidance builds upon the body of thought
it provides a framework through which the recovery and practice developed by ICOMOS and ICCROM over
of heritage places can be supported and harnessed decades of their activity. Existing conservation theoretical
in coming to terms with and overcoming the trauma documents, guidelines or toolkits remain valid, and
associated with destruction and loss. reference is made to them whenever relevant and useful.


Fig. 1. Villagers mark the destruction of their local church, Temple of Nuestra Señora de La Asunción
de Santa María de Apaculpo, San Luis Potosí, Mexico. (Source: Renata Schneider)

1
In the ‘Policy on Cultural Heritage’, the Prosecutor of the International Criminal Court presents cases that victims of crimes against or
affecting cultural heritage express the pain and trauma experienced due to heritage destruction. https://www.icc-cpi.int/sites/default/files/
itemsDocuments/20210614-otp-policy-cultural-heritage-eng.pdf
08 | ICOMOS–ICCROM GUIDANCE

The Guidance: Aim, purpose, scope, target audience, structure

Aim recovery following catastrophic events.

This Guidance aims to help relevant actors affected by
destruction at heritage places of cultural significance to The Guidance does not elaborate on the differing
set up sound decision-making processes for recovery characteristics of destruction through natural and human
and reconstruction. It sets out a framework within causes. It recognises that differences exist, and that these
which thorough, informed and participative decision- influence the recovery process and the possible forms of
making can be undertaken in recovery. Recovery is reconstruction.
understood to include reconstruction, involving tangible
and intangible attributes of heritage places and World Target audience
Heritage properties. The Guidance aims to suggest a The Guidance is primarily addressed to experts working
context-attentive recovery approach that enables the in heritage conservation and all those with responsibility
perpetuation of the significance of heritage places and for the protection and conservation of the heritage
Outstanding Universal Value (OUV) of World Heritage place on the ground. In the World Heritage context, it is
properties to the greatest extent possible. addressed to States Parties, their relevant authorities and
implementing agencies, and technical staff in the relevant
Purpose sectors. It may also assist a wide range of community
This Guidance elaborates on recovery and reconstruction actors, including civil society, in organising responses to
as processes that require planning, open discussion, catastrophe and recovery.
preparatory research and thorough documentation. 2

Reconstruction and recovery need to engage affected Structure of the Guidance

communities and assist people in healing, rebuilding social The Guidance identifies key factors in a fruitful recovery
cohesion, enhancing resilience and creating conditions for process, discusses their interrelationships and organises
sustainable development. them into a comprehensive framework. The framework
is thematic and considers factors related to the heritage
Scope place and the destructive events, factors related to
This document recognises the widespread need for organisation and factors related to outcomes.
Guidance to assist damaged heritage places of cultural
significance and sets out to provide such support. The Guidance makes the conscious choice not to address
However, it maintains a focus on World Heritage properties these factors according to the sequence usually followed in
that as a result of traumatic events have lost part or all of documents describing recovery processes, for two related
those attributes that convey their OUV, and where there is reasons: firstly, the occurrence of catastrophes and related
often a desire – if not a quasi-imperative – to recover what recovery actions rarely follow linear sequences; and secondly,
has been lost through some forms of reconstruction. many of these factors need to be addressed at different
stages of the recovery process. Some, such as capacity
The Guidance recognises the broader context of disaster building, documentation and population engagement, are
risk management planning and the related guiding cross-cutting factors to be taken into account in preparatory
documents; however, this document focuses on post- phases and throughout responses to catastrophe.
event recovery and reconstruction.
The Guidance also explains the concepts that it uses (see
The Guidance provides a framework that helps in Key Concepts, page 09 ) and sets out the principles that
articulating the process for making decisions on heritage apply throughout the recovery process.

2
ICOMOS Charter – Principles for the Analysis, Conservation and Structural Restoration of Architectural Heritage, 2003. https://www.icomos.
org/en/about-the-centre/179-articles-en-francais/ressources/charters-and-standards/165-icomos-charter-principles-for-the-analysis-
conservation-and-structural-restoration-of-architectural-heritage
 ICOMOS–ICCROM GUIDANCE | 09

Updates the heritage place. Restoring and building capacities

Reflection upon post-trauma recovery and reconstruction and heritage-based social relations has as its goal the
of heritage places of cultural significance continues to resumption of a stable, healthy state after trauma,
evolve due to the rapid change in nature, frequency and giving recovered heritage places appropriate use.
intensity of disasters, as well as the development of relevant
technologies and capacities; therefore, ICOMOS and ICCROM Reconstruction
intend to maintain the Guidance as a document open to ‘Reconstruction’ means an action or process that
periodic review and update as needs emerge. aims at returning, to the extent that is possible, a
destroyed or severely damaged heritage place to a
previously known state of integrity while preserving the
Key Concepts authenticity of as many attributes as possible.

For the purpose of this Guidance, key concepts are to be Reconstruction is one of the strategies that may be
understood as outlined below: adopted in maintaining or restoring the physical
environment within the recovery process. Achieving
Recovery this will involve the maximum retention of surviving
‘Recovery’ refers to the attainment of a stable, healthy material, and in certain circumstances, may involve
state after experiencing trauma, damage or loss. It adding new material where necessary to maintain or
involves economic, social and environmental aspects recover significance.
related to cultural heritage, aimed at enhancing inclusive
and sustainable development. Trauma
The catastrophic destruction of a place has
Recovery does not mean a return to a previous condition commensurate impacts on its inhabitants. The word
that existed prior to the traumatic event. It involves ‘trauma’ is used to describe severe impacts that result
achieving a new condition that has grown from what has from such events, whether caused by natural processes,
been endured. by human agency or by the interaction between these.
In addition to physical damage to people, such events
For heavily damaged or destroyed heritage places or may cause psychological, cultural and social disruption
properties, recovery means re-establishing the capacity of to individuals and communities caught up in them. The
surviving attributes, including fragmented ones, to convey effects on populations of the destruction of cultural
heritage significance or Outstanding Universal Value inheritance3 can be equally profound.
(OUV), and re-establishing the conditions under which
these may be conveyed. The effects of trauma can include individual or collective
inability to cope, leading to denial or loss of identity or
Insofar as recovery concerns tangible heritage, it will include memory. Such impacts may persist after the physical
a range of interventions, such as emergency protection, effects have been addressed. Depending on the nature,
consolidation, repair, restoration and reconstruction. Their length and recurrence of traumatic events, traumas
appropriateness will depend on the nature and condition of can affect individuals, groups, communities and entire
the attributes that support the significance of the place, and societies – at local, national and international levels – and
on the need of the communities. may be confined to one generation or extend across
generations, with different intensities and durations of
Recovery can also involve the revival and employment persistence. Recovery of cultural heritage often provides,
of intangible practices and expressions linked with or forms part of, coping mechanisms after severe trauma.

3
‘Inheritance’ is used to indicate tangible and intangible assets that a society has inherited from the past; it is intended to be a more general
term than the word ‘heritage’.
10 | ICOMOS–ICCROM GUIDANCE

Resilience With regard to heritage places, recovery will mean

The term ‘resilience’ has been used to describe the improving their capacity to absorb or to adapt to
ability of a heritage place to experience change without the impacts of events in ways that maintain their
loss of its defining characteristics. significance and the living relationships that the places
sustain. From the perspective of physical heritage, it
Resilience may also refer to people. The capacity of a may involve ‘building back better’.
community or population to come to terms with and
work through the effects of catastrophic events is an Building back better
essential element in recovery, in the awareness that ‘Building back better’ in the heritage context
post-event interventions cannot bring about a return includes ensuring that the issues that led to or
to earlier, pre-event conditions. contributed to the loss of a heritage place in a
disaster (such as poor maintenance, poor drainage,
Changes in relationships and habitats brought about inappropriate structural interventions, inappropriate
by catastrophic events present major challenges, often use and/or abandonment, inoperative management
impacting most severely on populations already in plans) are addressed in the recovery.
vulnerable situations, where challenging circumstances
are a fact of everyday life. Recovery may draw In addition, new risks must be addressed (such as
on resources that are already depleted. The term the effects of climate change, overdevelopment,
‘resilience’ must not be used to suggest that the primary obsolescence, the creation of conditions for
responsibility for recovery somehow rests with the overcrowding or abandonment, and poorly considered
affected population, in the process reducing the role of interventions that can affect the integrity of traditional
wider society in supporting recovery. structural systems).

When used in this document with reference to people, Building back better in the heritage context may
resilience is seen as a quality to be nourished in post- include the introduction of technologies and materials
disaster intervention: moving on to a better life will that improve the performance of structures in the face
require support within the broad recovery strategy over of ongoing and emerging challenges, while avoiding
time. It will involve the creation of more sustainable the risk of significantly affecting the authenticity of
living conditions, including living environments. the attributes.


From left to right:
Fig. 2. The reconstruction
of the Duomo di Venzone,
Italy retained the
deformations caused by the
earthquake that destroyed
the church. (Source:
Francesco Doglioni)
Fig. 3. Patan, Nepal.
Although the Charnarayana
temple, Patan, Nepal had
been completely destroyed
by earthquake, the survival
of the idol allowed the
continuation of worship.
(Source: Kathmandu Valley
Preservation Trust)
 ICOMOS–ICCROM GUIDANCE | 11

Principles for a Sustainable framework affirms that the recovery of cultural

heritage has the potential to mitigate the negative
Recovery Process effects of disasters and catastrophes.

Recovery of cultural heritage vs The recovery of heritage places of cultural

general recovery processes significance, including World Heritage properties,
The effects of disasters stretch beyond the damage is often part of larger and more general recovery
to the cultural significance of a heritage place, or to processes with their own goals and agendas.
the attributes that support the Outstanding Universal Coordinating heritage recovery with these larger
Value (OUV) of a World Heritage property. They affect processes is fundamental. However, heritage recovery
the social, environmental and economic structures pursues specific goals and is realised by respecting its
that underpin the viability of cultures. The Guidance own pace.


From top to bottom:
Fig. 4. The reconstruction of
the Main House, or Muzibu
Azaala Mpanga, engaged
the local population in
traditional and ritual
practices in maintaining
its religious and cultural
significance. Kasubi Tombs
complex, Kampala, Uganda
(Source: Jonathan Nsubuga)
Fig. 5. Patan, Nepal.
The devastation caused
by the collapse of two
mandapas in Patan square
(Source: Kathmandu Valley
Preservation Trust, Nepal)
12 | ICOMOS–ICCROM GUIDANCE

Scope and scale of recovery of Context-attentive recovery

cultural heritage All heritage places, including World Heritage properties,
The recovery of cultural heritage is multi-scalar: it must be understood in their cultural and historical
may include architectural elements, whole buildings, contexts, with adequate knowledge of their tangible and
complexes, cultural landscapes or historic cities and intangible attributes of heritage significance or of OUV,
settlements. Helping to bring about recovery will where relevant. The damage they may suffer is also to be
demand strategic and practical interventions for the understood from these perspectives.
rehabilitation of tangible/physical and intangible
attributes and the socio-economic processes of a The recovery of heritage places must take into
heritage place. These must and will involve top-down consideration the local contexts and work within them.
and bottom-up approaches, integrated through Recovery must take into account a wide range of factors
multidisciplinary operations. that apply both in traumatic loss and in the actions taken
in its aftermath. These factors include: security issues;
The active engagement of populations at personal and environmental conditions; cultural norms; economic
social levels is essential for the recovery of heritage conditions and instruments; functional capacities;
places and the re-establishment of living environments traditional, religious and political structures; human
of cultural significance. Such engagement requires rights; and judicial provisions.
stimulation and support.
The recovery of heritage places must be an integral part of
Heritage recovery vs significance the recovery process in the broader context. This involves
of heritage places/OUV of World the early deployment of measures that respect the cultural
Heritage properties significance of these places, including intangible cultural
Widespread destruction may – but does not expressions. To achieve this, it is essential to liaise with
necessarily – cause the loss of the significance of civil protection and emergency services well in advance
heritage places or of the OUV of properties inscribed of catastrophe, so that operational protocols may be
on the World Heritage List. However, the impacts established for later cooperation. These protocols control
of catastrophic events on people, properties and post-event emergency phases; the way in which damage
livelihoods do in most cases also bring about indirect to heritage is addressed in these phases determines its
impacts on cultural heritage: perceptions about effective recovery.
heritage values may change, heritage practices may
be impacted, and skills and know-how may be lost Recovery should consider the ongoing community
with their holders. It is from this perspective that use of a heritage place and the community’s needs, as
this document refers to the notion of trauma and well as the sustainable sourcing of materials. It should
traumatic event. avoid materials and processes that are harmful to
health or environment, and likewise avoid new materials
Actions directed toward recovery and reconstruction whose life cycles and impacts on historic materials
need to preserve surviving attributes conveying the and structures are not sufficiently known and proven
values of the heritage place, and may also contribute through experience. Recovery should ensure ongoing
to the discovery or creation of new values. Most management and post-recovery maintenance.
importantly, these actions need to avoid exacerbating
the destructive effects of traumatic events. Value-based recovery
The retention and perpetuation of as many aspects
To appraise whether heritage significance or OUV has and attributes of heritage significance, authenticity –
been lost or significantly modified due to the impacts and for World Heritage properties, OUV – as possible,
of a traumatic event on the attributes of the property, including the preservation of surviving heritage fabric, is
sufficient time must have elapsed between the event at the core of effective heritage recovery strategies and
and the efforts deployed in the recovery. interventions, reconstruction included.
 ICOMOS–ICCROM GUIDANCE | 13

The theoretical and technical possibility of recorded to assist future coordination of intervention and
reconstruction must not be used as a justification for the integration of heritage protection processes.
unnecessary demolitions or removals of damaged
heritage components for any reason, including to speed Regular monitoring and reviewing of the recovery
up reconstruction or reduce costs. and reconstruction process is essential. This will aid in
ascertaining whether initially set out visions and goals
Destruction of heritage places and World Heritage remain valid and viable, or whether there is a need to
properties does not justify the lifting of protection adjust or reset goals, approaches and timeframes to
and impact assessment mechanisms that were put in ensure the sustainability of the process in the long term.
force before disasters, whether to speed up recovery
or reconstruction interventions or for any other reason. Principles concerning cultural heritage conservation set
Those mechanisms should be kept in force throughout out in policy documents produced by UNESCO, ICOMOS
the entire recovery process. and ICCROM form the overall reference for achieving
sustainable recovery processes in heritage places of
Any possible impacts of planned actions or interventions cultural significance.
in the recovery process on the significance of the
damaged heritage place should be assessed. Where Heritage recovery vs current and
impacts are unavoidable, mitigation measures must be future risks
integrated at the planning and implementation levels. Challenges may be posed by superimposing impacts
and cascading effects of events, whether occurring
Inclusive, participative and simultaneously or consecutively, as well as recurring or
people-centred recovery
Recovery from traumatic events demands long-term protracted events. Recovery and reconstruction will need
commitments and processes that need the involvement the capacity to respond to these potential challenges.
and participation of the local populations – and other Making provisions within recovery processes and
parties associated with the damaged heritage place – selecting specific measures to counter risks arising from
throughout. diverse social and environmental challenges will improve
the sustainability of the recovered or reconstructed
Recovery and reconstruction of heritage places and heritage place.
World Heritage properties, particularly in post-conflict
situations, must be accompanied by processes and
measures supporting transitional justice, reconciliation,
and sustainable and equitable development
opportunities to ensure that heritage reconstruction can
effectively contribute to larger recovery processes.

Sustainable, resilient and

risk-informed recovery
Recovery of heritage places also involves improving
the resilience of the heritage place and World Heritage
properties for the future.

Reconstruction processes should be continuously

documented and accessible for the purpose of
evaluation, future conservation action and risk
management. It is important that the actions undertaken
to promote recovery in the wider context are similarly
14 | ICOMOS–ICCROM GUIDANCE

References
Warsaw Recommendation on Recovery and Reconstruction of Cultural Heritage, 2018. Available in English, French and
Polish at: https://whc.unesco.org/fr/evenements/1442/

Background document on the Challenges of World Heritage Recovery – The reflection on reconstruction within
World Heritage properties as a complex multi-disciplinary process, 2018. http://whrecovery2018.pl/wp-content/
uploads/2018/05/Reconstruction-Background-Paper-05.5.18-1.pdf

ICOMOS. Post-Trauma Reconstruction. Proceedings of the 1-day Colloquium at ICOMOS Headquarters,

4 March 2016. Volume 1 and 2, Paris 2016. https://openarchive.icomos.org/id/eprint/1707/

UNISDR. Sendai Framework for Disaster Risk Reduction 2015–2030, Geneva 2015. https://www.undrr.org/publication/
sendai-framework-disaster-risk-reduction-2015-2030

UNDP. Post-Disaster Recovery: Guidelines and Good Practices, no date. https://www.un.org/en/ecosoc/meetings/2005/

docs/RECOVERY%20guidlines.pdf

UN. Hyogo Framework for Action 2005–2015. Building the Resilience of Nations and Communities to Disasters, Geneva
2007. https://www.unisdr.org/2005/wcdr/intergover/official-doc/L-docs/Hyogo-framework-for-action-english.pdf

ICCROM/Latvian National Commission for UNESCO/State Inspection for Heritage Protection of Latvia. Riga Charter
on authenticity and historical reconstruction in relationship to cultural heritage, 2000. https://www.iccrom.org/sites/
default/files/publications/2020-05/convern8_07_rigacharter_ing.pdf

Declaration of Dresden on the ‘Reconstruction of Monuments Destroyed by War’, 1982. https://www.icomos.org/en/

charters-and-texts/179-articles-en-francais/ressources/charters-and-standards/184-the-declaration-of-dresden

International Charter for the Conservation and Restoration of Monuments and Sites, or ‘The Venice Charter’, 1964.
https://www.icomos.org/en/participer/179-articles-en-francais/ressources/charters-and-standards/157-thevenice-
charter
 ICOMOS–ICCROM GUIDANCE | 15

Guidance Framework
Recovery after major disasters takes time. The diverse and complex A direct time-sequence approach
nature of catastrophes affecting heritage places poses particular would follow a typical template:
challenges to the aim of defining phases of recovery and opportunities disaster preparedness and planning;
for intervention that can apply in every instance. Issues of preparedness emergency response; recovery
and planning for disaster that apply to disasters are generally relevant planning; project management, etc.
in distinct ways when cultural heritage is concerned. Thus, this Guidance Several guidelines exist already that
focuses on factors that need to be taken into account across the process address the above-mentioned phases
as a whole, so that links between phases can be understood. In many from an operational perspective.
instances, describing actions under discrete time-sequence headings
such as ‘before’, ‘during’ and ‘post-event’ can be simplistic. Catastrophes
may arise through events that are repeated, intermittent or protracted,
and some impacts may take time to emerge. Nonetheless, it is useful
to outline broad themes for consideration and categories of action that
relate to them.

The Guidance for post-trauma recovery and reconstruction sets out a

framework for recovery under three principal headings:

1. Heritage Factors
2. Organisational Factors
3. Outcomes: Disaster Risk Reduction and Sustainable Recovery

1. Heritage Factors
1.1 The primary heritage factors to be considered in the recovery It is necessary to identify the
processes are: intersecting hazards, vulnerabilities
and exposure that caused the
• the nature of the heritage place, its significance and the attributes disaster/accident/act of violence in
supporting that significance order to understand the root causes
• the nature and extent of impacts on the heritage place and on of a traumatic event. These might
society include physical conditions, previous
• current and future use of the heritage place interventions and modifications of
• root causes of the catastrophic event structures.
• the available resources and capacities to enable recovery
• the development of recovery and reconstruction strategies and
programmes directed towards the protection of the heritage place
and its transmission to the future.
16 | ICOMOS–ICCROM GUIDANCE

1.2 The factors in response to catastrophe and the guidance on

reconstruction actions in support of recovery are organised below
under three main headings:

• Documentation of the heritage place prior to the traumatic event

• Documentation of the traumatic event
• Recovery actions.

1.3 The implementation of actions related to the above factors will

depend on individual circumstances and contexts, and they may
overlap or be repeated as events unfold.

Documentation of the heritage place prior to the catastrophic event

1.4 Understanding the heritage place in all its tangible and intangible Responsible agencies should ensure
characteristics – its location or physical setting and socio-economic, that documentation in written
cultural and historic contexts – represents a precondition for assessing and visual form is held in a secure
the impacts of the effects of the traumatic events on the heritage or repository or archive. A great deal
cultural significance of the heritage place. of information can be assembled
post-event, but the availability of
comprehensive information that
underpinned the recognition of
significance is of great importance.
Attention should be paid to sources
that may not have usually been
associated with the assessment of
significance; folklore collections,
literature, art and oral records have
proven to be important in this respect.

1.5 Buffer zones to World Heritage properties may be heritage

places themselves or contain heritage places distinct from those
included within the boundary of the inscribed property. In this
case, the baseline assessment also needs to address the role and
function played by the buffer zone and by the broader setting in
complementing and sustaining the OUV of the World Heritage
property.
 ICOMOS–ICCROM GUIDANCE | 17

1.6 A Statement of Outstanding Universal Value lies at the core of any For a definition of Statement of
inscription on the World Heritage List and of the management of Outstanding Universal Value and
World Heritage properties. An integral element is the identification of attributes, please consult Guidance
attributes that convey OUV. and Toolkit for Impact Assessments in
a World Heritage Context (UNESCO,
ICCROM, ICOMOS, IUCN, 2022): see
References (page 41).

1.7 The identification of attributes needs to be as complete as possible In addition to material elements,
so that damage or loss can be systematically recorded, appropriate attributes that convey OUV may
mitigation measures implemented, impact on the significance of include intangible aspects, such
the site assessed, and options for recovery and supporting actions as: socioeconomic structures; the
identified. rituals, narratives, skills and livelihood
activities of resident populations; and
inhabitants’ relationships with history
and the past.

1.8 Shortcomings in the identification of attributes may become evident Several early World Heritage
when the process outlined below is considered. It is essential that, as nomination dossiers have not been
soon as they can do so, States Parties with all relevant actors evaluate complemented yet, either by a
the quality of the descriptions of attributes from the perspective of Statement of Outstanding Universal
their possible depletion or destruction. This matter will be considered Value or by a detailed identification of
further in Section 3: Outcomes: Disaster Risk Reduction and attributes. This gap is being addressed
Sustainable Recovery (see page 51). progressively by States Parties with
the support of the World Heritage
Centre and in dialogue with the
Advisory Bodies.


From left to right:
Figg. 6. a, b. The impact
of previous restoration of
the Palazzo Carli Benedetti,
L’Aquila, Italy,as witnessed by
photographs from the early
1900s (Alinari) showing (left)
the eighteenth-century window
frames of the loggia and (right)
their removal in the restoration
of 1947. (Source: Chini Collection)
18 | ICOMOS–ICCROM GUIDANCE

Documentation of catastrophic events

1.9 Documenting the nature of the catastrophe and its extent provides This paragraph should be read in
information on the context in which damage or destruction of conjunction with paragraphs 1.14 to
heritage places has occurred and clarifies factors and elements to be 1.19 and 1.23 to 1.28 in this section, and
considered in the recovery process. with Section 2: Organisational Factors
(see page 42).

1.10 Disasters that affect heritage properties are of many types and For instance, natural hazards may
causes. Those arising from natural hazards may be sudden, once-off, include land movement and collapse
repeated over time or an evolving consequence of ongoing processes from earthquakes, storms, flooding,
such as climate change. Human-caused catastrophes may be sudden, avalanches, landslides, extreme weather
short, protracted, intermittent, focused on cultural artefacts or events and fire. Human actions may
generic. Two or more different catastrophes can occur at the same also exacerbate the impacts of natural
time and their effects may be superimposed, one upon another. hazards. Destruction occasioned
by human action may be deliberate
or accidental, the result of conflict,
industrial accident or unrestrained
resource exploitation.

1.11 Catastrophic events are often characterised by: human tragedy; The impacts of events triggered
loss of life, home and community; population displacement; through natural causes can differ from
major economic disruption; and loss of roots and traditional those arising from human action: in
culture. Often, a catastrophe also places heritage in peril as a the first instance, community and
consequence of death or migration, or of such interventions social relationships often display
as post-event repair and renovation of infrastructure and great solidarity and may prove to be
neighbourhoods that is disrespectful of social and heritage highly resilient. However, in the case
dimensions. of conflicts, differences may be long-
standing, as the cause or consequence
of deep divisions and exclusions that
persist over time.
 ICOMOS–ICCROM GUIDANCE | 19

1.12 The approach to documentation should underscore cross- Documentation should detail:
disciplinary knowledge exchange and inter-agency cooperation
to characterise hazards, vulnerabilities and exposure. It should • whether the catastrophe is a
include the knowledge of heritage practitioners and craftspeople. singular event, cyclical, recurrent
or protracted
• the impacted area
• the general impact on the physical
environment
• losses and surviving elements,
pre- and post- catastrophe.

Vulnerabilities of the heritage place

and its physical, social, cultural and
economic contexts provide helpful
information for the recovery process.
Understanding whether perceptions
and narratives about heritage
significance and vulnerabilities
have changed in the aftermath of
a catastrophe is also essential for
preparing recovery and its socio-
cultural and technical process.

Helpful guidance and references to

documenting disasters can be found in
the Post-Disaster Needs Assessments –
Volume A (GFDRR, EU, WB, UN, 2013)
and Volume B: Culture (GFDRR, EU, WB,
UN, 2017). For conflicts, useful guidance
and references are included in PATH
– Peacebuilding Assessment Tool for
Heritage Recovery and Rehabilitation
(ICCROM et al, 2021). See References
(page 39).


From top to bottom:
Fig. 7. The response of local people,
pictured clearing rubble in the immediate
aftermath of conflict damage in the city of
Nablus, Palestine (Source: Nusir R. Arafat)
Fig. 8. Patan, Nepal. The earthquake of
2015 in Nepal brought about the complete
collapse of Harishankara Temple, one of the
main temples in Patan, Kathmandu. (Source:
Kathmandu Valley Preservation Trust)
Fig. 9. War damage to the Sevri Hadži
Hasan mosque, Mostar, Bosnia and
Herzegovina (Source: Zeynep Ahunbay)
20 | ICOMOS–ICCROM GUIDANCE

Actions for recovery planning

Response actions are considered under the headings below. It should be understood that they do not necessarily imply
a strict sequence, where one category of action is completed before the next can commence. They can be, or may need
to be, implemented in parallel.

• Emergency response and initial damage assessment

• Documenting effects of the destructive event
• Assessing impacts on heritage significance or OUV
• Heritage protection and reconstruction in recovery processes
• Developing a strategy for recovery and maintenance of heritage significance or OUV
• Provision for review of outcomes.

Emergency response and initial damage assessment

1.13 Rapid, provisional assessments of impacts tend to be made in the These assessments may be provisional
immediate aftermath of traumatic events. Local knowledge and and made while the primary focus
insights may greatly assist in rapid damage assessments to identify of State Parties and other agencies
the most critical heritage sites requiring immediate attention. is directed towards humanitarian,
Primary elements are: infrastructural and security responses.

• the immediate protection of surviving attributes, elements, The pre-event documentation of

artefacts or other heritage assets; the resource will draw on historic
• the provision of early documentation. records, available written, graphic
and photographic documentation and
satellite images, where available.

Post-event documentation will focus

on establishing the new situation,
guided where possible by available
information on the pre-event condition.
For World Heritage properties, priority
in early damage recording should be
given to the attributes of Outstanding
Universal Value.
 ICOMOS–ICCROM GUIDANCE | 21

1.14 Rapid assessment usually produces an emergency plan that sets out Prioritisation is based on factors such
prioritisation of salvage actions and all steps needed to secure the as the significance, vulnerability and
heritage place, in order to minimise the risks caused by the effects potential for rescue of each place or
of the events and to allow for detailed damage assessments. The element.
emergency plan for damaged heritage places can greatly benefit
from the involvement of the leaders of the affected community, On-site damage and risk assessment
cultural heritage experts and relevant stakeholders in creating is a combination of rapid observation
strategies that address the specific needs of the area. and sophisticated technical
surveying. The on-site damage and
risk assessment is conducted by
experts on heritage and specialising
in heritage survey techniques. These
data shoud be combined with on-the-
ground observations from community
members to obtain a comprehensive
understanding of the situation.

1.15 While the existence of documentation prior to disaster is useful After the initial emergency and
for comparison in identifying the extent of physical damage, the stabilisation, the early recovery
importance of early recording of the damage and of surviving phase allows for more participatory
elements is emphasised. This activity is known in post-catastrophe documentation. This builds on
recovery as ‘situation analysis’ and is usually conducted remotely existing photos, maps, inventories
where physical access is restricted. Appropriate situation analysis and community-led data collection.
includes engaging with local residents and experts and the leaders of The local communities must be
the affected communities to develop a shared understanding of the empowered to actively participate
wider context and immediate needs. in data collection efforts. Training
and resources to this end will be
needed. This approach not only
enhances the accuracy of data, but
also fosters community engagement
and ownership. Participatory
documentation helps affected
communities to participate in their own
cultural recovery. In a conflict situation,
it also helps to develop a conflict-
sensitive approach.

The situation analysis helps to identify

when it is safe to start and how to
plan the on-site damage and risk
assessment. Detailed guidance for
situation analysis is provided in the
manual on First Aid to Cultural Heritage
in Times of Crisis (ICCROM, 2018): see
References (page 39).
22 | ICOMOS–ICCROM GUIDANCE

1.16 Image capture is a first essential step; other forms of documentation, Image capture may include
such as audio recording, should be utilised as circumstances allow. photographs, aerial views, satellite
Comparatively simple technologies and techniques can be very useful imagery, recordings made using mobile
in disaster settings and, in certain situations, might be preferable to phones or tablets, crowdsourcing
technologies that require more sophisticated equipment. of images, and the use of drones
and robots for 3D documentation.
Additional documentation
techniques may include sonic and
thermographic characterisations of
damage, internal dispositions and
historic layers. Technologies for rapid
survey and damage documentation
continue to evolve at a rapid pace,
but methodological approaches to
documentation have been set out.

Detailed guidance on on-site damage

and risk assessment is given in the
manual on First Aid to Cultural Heritage
in Times of Crisis (ICCROM, 2018). See
References (page 39).

1.17 Measures must be in place to capture and retain such data as

evidence of the extent and form of damage and – for use in assessing
impacts on attributes – post-disaster risk assessments and the
identification of actions needed to enable recovery or reconstruction.

1.18 Salvage extends to fragments, contents and artefacts. Debris removal Fragments must be identified,
management plans, including access routes, storage facilities and protected, collected, photographed,
spaces for later selection of heritage fragments, can assist in their inventoried/numbered, and if
safeguarding and future use in recovery processes, and in avoiding or displaced, securely stored for later
reducing the risk of theft. reinstatement and to prevent looting.
When fragments of heritage places or
sites are mixed with debris and difficult
to identify, further loss of heritage
fabric in association with site clearance
is a risk.
 ICOMOS–ICCROM GUIDANCE | 23

1.19 Both modern and traditional knowledge, technologies, techniques Such interventions may require
and construction practices may have an essential role in temporary engineering expertise in cases where
shoring, salvage and storage. Actions to stabilise damaged heritage structures have become unstable.
places and prevent further loss or destruction may involve shoring
and bracing, as well as securing loose or fragile elements to prevent Guidance for security and stabilisation
collapse or additional damage. These actions can be planned is given in the manual on First Aid to
strategically to allow the safe use of damaged structures or spaces, Cultural Heritage in Times of Crisis
thus facilitating the continuity, or the re-establishment, of the (ICCROM, 2018) and in other guidance
connection between the people and their heritage and living places. documents listed in the References
Whenever possible, active community participation in decision- below (see page 39).
making related to stabilisation measures should be sought.
The Italian National Fire Department
has developed a manual to build
shoring for unstable structures:
Vademecum STOP: Shoring templates
and operating procedures for the
support of buildings damaged by
earthquakes (2012) . See References
(page 40).

1.20 The need to implement emergency safeguarding measures

may emerge as the aftermath of a disaster event unfolds, or as
documentation of the effects of the traumatic events on heritage
places proceeds. Such work must be done under appropriately
qualified supervision and considered only when procedures such as
temporary stabilisation are insufficient.

1.21 When measures such as temporary stabilisation are insufficient, the Controlled dismantling is a process
need may emerge to implement additional emergency safeguarding through which unstable portions of
measures, whether to protect lives, avoid further damage or enable a heritage place are removed from
later repairs or reconstruction. These may include the controlled their location through a controlled and
dismantling of unstable building components. Judgements in phased process. This process allows
this regard and implementation of this measure require expert their reinstatement once conservation
knowledge. treatments have been conducted both
on the portion removed and on the
extant part of the structure that has
remained in situ.
1.22 Temporary stabilisation works undertaken during an emergency
response, whether to prevent injury from damaged structures, to
prevent collapse or to guard against further damage, should not be
considered a replacement for definitive recovery interventions.
24 | ICOMOS–ICCROM GUIDANCE

1.23 Until such time as a detailed assessment of impact can be made,

reconstruction beyond emergency measures should be avoided. Such
temporary measures as are necessary should be carried out in such a
way that they do not eliminate or inhibit options for future repair or
reconstruction that could recover attributes of OUV.


From top to bottom:
Fig. 10. Artefacts and decorative elements
were manually recovered from the debris
of collapsed temples, Patan, Kathmandu,
Nepal. (Source: Thomas Schrom)
Fig. 11. Major stabilisation propping
to the former Municipal Chambers,
Christchurch, New Zealand (Source:
Christchurch City Council heritage files)
Fig. 12. Temporary protective covering
with tarpaulins to the damaged wings
of the Royal Palace, Patan, Kathmandu,
Nepal (Source: Institute of Conservation,
University of Applied Arts, Vienna)
 ICOMOS–ICCROM GUIDANCE | 25

Documenting effects of the destructive event

1.24 The documentation of effects is necessary so that an accurate

appraisal can be made of the status or conditions of the elements
and tangible attributes of the heritage place.

1.25 The process of documenting effects on the heritage place, its Initial review of the effects of the
resources and attributes may commence even as events unfold. traumatic event on the heritage place
However, more specific information, additional documentation and and its attributes is made on the basis
further, in-depth analysis are likely to be required in order to reach of data gathered through resources
conclusions. The process involves assessing both the extent of that are at hand. If possible, this should
the damage or loss to heritage places and the social and cultural be achieved through a combination of
impact of the trauma on the affected community. This assessment off-site and on-site multidisciplinary
may be conducted by heritage professionals, community leaders and interdisciplinary methods. New
and other experts in collaboration with the people affected. technologies offer opportunities in this
The preparation of this information will yield a provisional respect.
understanding of the scope of damage and of immediate actions
required to mitigate effects and prevent further loss.

1.26 The documenting and review of effects of a traumatic event on the A detailed damage and risk
attributes of a heritage place can proceed in parallel and, whenever assessment must be undertaken, and a
meaningful, in synergy with other sectors impacted by the event. condition statement prepared, for each
of the attributes of significance or OUV
of World Heritage sites. Any damage
to attributes must be recorded.

1.27 In documenting damage, it is important to assess the underlying Examples include the decay of
factors that may have increased the vulnerability of the heritage building fabric (insect attack, rot, etc.),
place or property to hazards, while also considering the possible changes in ground conditions, lack of
emergence of new hazards. The reconstruction framework should maintenance, construction defects or
address these as the recovery process unfolds. low quality materials.

1.28 Actions towards reconstruction will be more sustainable if pre- See also ICCROM’s tool on Vulnerability
existing defects and weaknesses that contributed to failures when and Capacity Assessment: see
the high-impact disaster occurred are identified as such during References (page 39).
the investigation – not all damage can be directly attributed to the
impact of a particular event.
26 | ICOMOS–ICCROM GUIDANCE

1.29 Data gathered in the immediate aftermath of a catastrophe needs Such data is important not only for the
to be managed and transmitted using standardised forms and assessment of impacts and recovery
protocols and utilising collaborative platforms or networks to make actions in that specific disaster, but
data available to diverse stakeholders and agencies. Coordination also because it provides a resource for
at international and national levels is required for this purpose, response to other, similar disasters and
as multiple entities are generally involved. It is imperative that is crucial for enhancing the capacity for
responsible agencies and particularly States Parties can access, recovery of people and heritage places.
manage and use the necessary data.


From top to bottom:
Fig. 13. Earthquake damage to the Cathedral
of the Blessed Sacrament, Christchurch,
New Zealand (Source: Andrew Marriott,
Christchurch City Council heritage files)
Fig. 14. Earthquake damage to Palazzo Carli
Benedetti, L’Aquila, Italy: the collapse of the
loggia staircase (Source: Carla Bartolomucci)
 ICOMOS–ICCROM GUIDANCE | 27

Assessing impacts on heritage significance and OUV

1.30 The outcome of early investigation must be a comprehensive Provisional assessment does not
description of the impacts of the event(s) on the attributes of the necessarily lead to a definitive
heritage place, and an initial, provisional assessment of how these conclusion as to whether attributes
relate to its significance. have been lost or depleted beyond
recovery.

1.31 Assessing the impacts of an event on heritage assets involves Competencies and processes for
determining their post-event condition and integrity, as well as these assessments will vary between
identifying the impact of the damage on their significance. uninhabited archaeological sites and
those supporting living communities. In
the case of continued and protracted
disasters, it is recommended that a
timeline be drawn to record successive
phases of the destructive events.

1.32 Whenever feasible, assessments of impact must include Typically, the process entails the
documentation of the effects of events on both tangible and creation of a systematic inventory of
intangible dimensions of heritage places or, where relevant, the heritage elements that express
attributes of OUV. Systematic recording and analysis will provide the significance of the property, or of
an early indication of damage to tangible and intangible attributes. the attributes that convey OUV, and
Involving affected communities and local experts in the assessment an assessment of their post-trauma
of impacts will benefit the process and increase capacities. condition.

A comparative analysis between the

heritage place’s pre-event attributes
and its current state may help in
determining the specific effects of the
destructive event. The combination
of quantitative analysis with narrative
descriptions will assist in capturing the
full extent of the impacts.

1.33 The assessment of impacts will be based on the extent of the

damage, the nature of the attributes and the role they play in
conveying the heritage significance or OUV. Such assessment
is provisional and may give rise to a need for supplementary
information, as circumstances allow. Provisional assessments
may be revised as a result.
28 | ICOMOS–ICCROM GUIDANCE

1.34 It is important to allow time to assess the implications of the damage The remains of the affected heritage
or loss before proceeding to outline choices for intervention. place or World Heritage site should
be fully protected from further
deterioration, theft and vandalism,
and appropriate management should
be provided during the process
of outlining the final choice for
intervention.

1.35 The assessment of the impact of destructive events on heritage In the case of World Heritage
places and their cultural significance, or on the attributes of OUV, will properties, assessments of impacts
occur within a wide range of circumstances and political contexts, will relate most directly to attributes
and will span varying timeframes. that convey OUV. For World Heritage
properties, States Parties may secure
the assistance of ICOMOS and ICCROM
and/or other international heritage
agencies in executing this task.

1.36 The identification of possible and appropriate reconstruction choices 

Fig. 15. Assessing damage to Sevri
will depend on the comprehensiveness and quality of information
Hadži Hasan mosque, Mostar, Bosnia and
gathered. It is important to ensure that the primary structures for Herzegovina. North–south cross-section
information-gathering are appropriate. drawing (Source: Selcen Onur, architect)
 ICOMOS–ICCROM GUIDANCE | 29

Heritage protection and reconstruction in recovery processes

1.37 The development of a recovery process that addresses how heritage

places have been affected requires three sets of actions:

• The assessment of impacts on significance and the identification

of opportunities for recovery actions
• The development of measures, including the harnessing of
statutory instruments, through which reconstruction actions can
be supported and coordinated at local and national levels
• The implementation of measures and establishment of feedback
mechanisms.

1.38 The condition of the attributes and the assessment of the impact
of damage on heritage values should form the basis for identifying
and assessing recovery choices, including forms of reconstruction,
if deemed feasible and useful to recovering heritage significance in
part or in full.

1.39 The chosen approach to recovery should ensure that the retention
of surviving fabric and attributes is maximised, and that damaged
heritage places are recovered and handed down ‘in the full richness
of their authenticity’, so that their heritage significance can be
conserved and enriched.

1.40 The retention of traces of damage and their integration into the Post-conflict recovery and
conservation and reconstruction of damaged heritage places is a reconstruction of heritage places
potent act of commemoration, and can support recovery processes. brings particular challenges in avoiding
Such processes may involve developing interpretive conservation the risks of appropriation of meaning
methods, materials and programmes that highlight the significance and of suffering. Guidance material
of the reconstructed heritage places in ways that respect the in this regard is available through
perspectives and experiences of affected people. Particularly UN, UNESCO and Council of Europe
where damage is a result of conflict, commemorative materials websites.
and programmes must take account of the need and prospects for
conflict resolution or reconciliation.
30 | ICOMOS–ICCROM GUIDANCE

1.41 Strategic planning can assist in setting out the long-term, Clarity and consistency of purpose,
intermediate and shorter-term goals for the recovery process. It is expressed at the strategic level, must
recognised that goals may require adjustment as recovery processes be maintained throughout short-,
take hold. Recovery processes are generally complex and demand medium and longer-term interventions.
advance planning, resource allocation and implementation measures. Aims and objectives that address long-
From the heritage perspective, the endpoint is the maximal recovery term goals for recovery, and reflect
of the significance of places, which means recovery of the attributes a vision for the cultural endowment,
that support that significance. should be set out at programme level.

Such interventions are designed to

promote the resumption both of daily
life and of projects aimed at the repair,
reconstruction and restoration of built
fabric, services and the public realm.

1.42 The recovery of a damaged heritage place is a process that occurs at In post-disaster and post-conflict
different levels, ranging from the individual project to programmes of recovery processes, developing a
action to re-establish the wider setting. To be effective, the process vision for the recovery of the area
will use different instruments as appropriate. The development of an affected by the traumatic event is
over-arching vision, expressed at the level of strategy, will assist in an important element in formulating
the integration of operational plans and programmes for the recovery a recovery strategy and designing
of specific heritage areas and attributes. recovery.
It should be noted that differing and overlapping timeframes are
characteristic of the process. Maintaining the overall goal of maximal
recovery of significance in the face of overlapping timeframes at the
various levels of intervention requires flexibility in implementation,
which will facilitate adjustments in programmes as feedback
indicates.

1.43 Within an overall strategy, reconstruction programmes and projects This is the case, for instance, for urban
at impacted heritage places might demand different timeframes areas, cities, sites and landscapes.
for practical and socio-cultural reasons. This is especially true for Inevitably, the approaches adopted in
complex sites whose significance derives from the richness of recovery and reconstruction will reflect
survivals from the past and the continuity of habitation and usage. this complexity, while the underlying
For similar reasons, the development of such a strategy may progress purpose remains the same.
at different rates throughout the affected area. It is to be anticipated
that strategies as well as programmes will evolve throughout the
recovery process.
 ICOMOS–ICCROM GUIDANCE | 31

1.44 It may not always be possible to achieve immediate consensus on a This can arise, for example, when the
definitive recovery approach, or a single recovery approach may not damage is extensive or the impacts
apply to the entire affected area or its peoples. Therefore, wherever are severe or continuing. It may arise
possible, the recovery vision must be able to accommodate a gradual where differences in value are ascribed
and iterative approach in defining and implementing reconstruction to the resource, or where there are
options, giving flexibility to recovery implementation while opposing views as to what recovery
maintaining direction. entails. Such conditions may especially
transpire when diverse populations
have been impacted.

1.45 A recovery process that embeds local initiatives for the recovery Please also see Section 2:
of specific heritage areas and attributes and integrates them into Organisational Factors (page 42).
broader operational plans and programmes provides an opportunity
for community engagement. More importantly, it can also generate
sufficient consensus to establish an overall recovery plan. The
building of consensus and the building of capacity within the
affected communities are primary elements of recovery.

1.46 The process of arriving at decisions on recovery actions, including In relation to possible envisaged
those relating to reconstruction, will identify for alternative approaches, the document produced
approaches: will:

• the purposes and motivation • describe the interventions

• the justification • identify the proposed recovery
• expected outcomes. actions, including those related
to reconstruction
This process, including the presentation of decisions, is a • identify the documentation and
fundamental element in the coordination of interventions, in resources available, the chosen
population empowerment and in building consensus, all of which methodology and techniques,
are central to recovery. The decision-making process and its the phases and the possible
outcomes will need to be documented and described in writing and timeframe.
made accessible to all relevant stakeholders and rights holders.

It will incorporate an appraisal of each

possible choice, which sets out which
attributes will be recovered, as well as
the impacts of the proposed recovery
methods on any surviving attributes
and the consequences for heritage
significance and OUV.
32 | ICOMOS–ICCROM GUIDANCE

1.47 Restoring a heavily damaged or destroyed heritage place to its pre- The integration of newly identified
trauma state may not be feasible in many cases. At the same time, attributes revealed by the effects of
altered or other attributes supportive of heritage significance or the traumatic events on the heritage
OUV may become apparent and generate new recovery options that place, and the question of reappraising
involve their conservation and enhancement. its heritage significance, might bring
valuable contributions to the recovery
plan.

1.48 Following catastrophes, heritage values may evolve, and the In the case of World Heritage
reappraisal of heritage significance or OUV may require time for properties, this may lead to the
reflection before an assessment can be made. application of established statutory
processes, i.e. reactive monitoring.

1.49 The needs and perceptions of actors regarding recovery may

also evolve in the process. Regular review of the vision, goals and
implementation allows the incorporation of evolving needs and views
about heritage recovery and reconstruction.

1.50 In the case of World Heritage properties, consultation with the

World Heritage Centre and the Advisory Bodies would be helpful
in developing a vision for recovery and the elements of a strategic
approach to reconstruction in that context.


Fig. 16. Temporary storage of displaced
fragments, Christchurch (Source:
Christchurch City Council heritage files)
 ICOMOS–ICCROM GUIDANCE | 33


From top to bottom:
Fig. 17. Salvaged bricks, sorted and stacked,
McLean’s Mansions, Christchurch (Source:
Christchurch City Council heritage files)
Fig. 18. Open-air temporary workshops
set up next to storage facility, Patan,
Nepal (Source: Institute of Conservation,
University of Applied Arts, Vienna)
Fig. 19. Skilled craftspeople at work,
Patan, Nepal (Source: Kathmandu
Valley Preservation Trust)
34 | ICOMOS–ICCROM GUIDANCE

EXPLORING APPROACHES TO RECONSTRUCTION AT DAMAGED WORLD

HERITAGE PROPERTIES

Below are some examples of circumstances under which reconstruction options for material fabric
might be explored:

• If the OUV is conveyed by attributes related to form, design and function, damaged or
depleted attributes may have the capacity to be re-established in some circumstances.
In exploring approaches to reconstruction, the goal will include the maximal retention of
historical material and its stratigraphy. This perspective is essential because new structures
may not necessarily reflect the historical associations or historical layering that existed
prior to the destructive events.

• If the OUV is reflected by attributes related to the coherence of an ensemble, and where
limited elements have been affected, it may be appropriate to re-establish the integrity of
the ensemble, including the use of new but compatible materials to do so.

• If the OUV is based on attributes related to the dynamism of a city that reflects centuries
of urban societies and their formal and informal structures, then the attributes of that
urban form might be re-established to re-house the inhabitants and revitalize the social
and economic fabric, maintaining the authenticity of the place. While the reconstruction
and recovery process can also bring opportunities to improve the quality of social or civic
life, the impact of long-term displacement of populations, or slow pace of reconstruction,
is a major consideration, and one that might affect the intangible aspects irreversibly.

• If the OUV relates to customary practices such as rituals, beliefs, stories or festivals,
reconstruction of tangible attributes (structures and carvings) may be critical to the
persistence of those practices, and the reconstruction process may need to respond to
specific requirements related to these practices.

The conditions outlined above relate to inhabited sites. In the case of uninhabited archaeological
sites, any consideration of intervention must prioritise the authenticity of surviving and persisting
attributes.

Note: The validity of the reasoning in the above paragraphs will need to take into account the scale at which it
is applied, and will need to be verified in each circumstance in relation to the specific configuration and historic
development of each attribute or heritage resource for which some form of reconstruction might be sought.
 ICOMOS–ICCROM GUIDANCE | 35

Approvals and consents

1.51 Where the heritage places in question have some level of statutory It has been observed that consultation
protection, specific permissions or consents from the relevant processes and the gaining of consents
authorities will be required. These may be required at different levels can be time-consuming, leading to
– at the level of strategy, the programme or the specific project. delays in essential interventions.
The success of recovery efforts can be related to how well they are Agencies and authorities must make
supported by the frameworks of institutions and regulation. Efficient every effort to streamline their
mechanisms for permission, as well as standardisation of practices, processes in order to avoid becoming
are crucial. obstacles to recovery despite their
supportive intentions.

Recovery processes may be delayed

due to delayed administrative
processes and a lack of capacity for
structural safety assessments, as well
as emergency stabilisation. Setting out
nationally and locally agreed, context-
sensitive recovery timelines is essential
to ensure a coordinated, effective and
efficient deployment of resources by
donors.

1.52 It is to be expected that works requiring consents or approvals will

range from short-term interventions such as temporary stabilisation
(e.g. propping, shoring, bracing) and temporary storage to repair
methods, material insertion or replacement, the deployment of new
materials or techniques, the construction of replacement structures,
changes to morphology and the provision of new infrastructure.
36 | ICOMOS–ICCROM GUIDANCE


From left to right:
Fig. 20. Involvement of a local inhabitant and student in architecture to assist in documenting how
to reassemble the elements. Duomo, Venzone, Italy (source: Francesco Doglioni)
Fig. 21. Securing metal clamp with molten lead in masonry reconstruction. Sevri Hadzi Hasan mosque, Mostar (Source: Zeynep Ahunbay)

1.53 In the case of World Heritage properties, reference to the World

Heritage Centre and the Advisory Bodies is a necessary step in
developing the assessment of how OUV may been affected, and in
devising acceptable approaches to its recovery. Compliance with
established procedures will be essential.

Implementation of the strategy: Instruments for planning and action

1.54 The implementation of strategies for a sustainable recovery demands

that the actions undertaken utilise the capacities of key actors at
every level. This requires a combination of bottom-up and top-
down approaches. The former will mean that the perceptions of the
local population, along with their knowledge, experience, skills and
heritage practices, are harnessed to shape a participative process
that can be sustained. The top-down approaches will require an
integration of strategic decisions, appropriate action plans and
resource allocations. The coordination of these approaches will
make demands on every level of organisation. Some critical factors
are discussed in Section 3: Outcomes: Disaster Risk Reduction and
Sustainable Recovery (see page 51).
 ICOMOS–ICCROM GUIDANCE | 37

1.55 Conventional planning instruments at strategic, programme and Various levels of instruments may be
project levels may be challenged by the flexibility demanded by utilised to maximise coordination and
post-disaster conditions. With clarity of purpose, planning methods effective use of capacities:
and instruments can be used with flexibility while maintaining
consistency though the various processes and procurement • Strategic Plans outlining purpose
measures. Thus, the application of planning instruments must be and resource requirements
subject to review as the recovery process unfolds. • Master Plans for implementing
entire programmes or for
complex interventions, or
• Action Plans for specific projects.

In many cases, international agencies

will bring both resources to bear, and
will have developed approaches to
intervention. Integration with local
and indigenous understandings,
organisational structures and
capacities is crucial.

1.56 The levels of strategy, programme and project must be addressed

in the recovery process. Based on the assessment of impacts of
disaster effects:

• The strategy level will set out aims and objectives for recovery,
which must reflect a vision for the heritage place after the
event(s), and the role of recovery in the societal healing process
from trauma. It will ensure a comprehensive and inclusive listing of
actors and address the scope of organisational networks.

• The programme and operational plan level will bring together

the broad means of achieving aims and the resources required,
will prioritise actions to address intervention to promote the
resumption of daily life and will include a list of projects.

• The project level is aimed at the repair, reconstruction and

restoration of the built fabric, services and public realm.
Experience on the ground will require adjustments, overcoming
blockages and utilising opportunities that emerge.

The different levels will call on different actors and agencies and
will utilise conventional instruments. Their coordination will be the
responsibility of the statutory authorities, and in the case of World
Heritage properties, the State Party.

1.57 It is important to note that such instruments need to be developed

in parallel rather than in sequence, with consistent cross-reference
between the objectives and the means of achieving them.
38 | ICOMOS–ICCROM GUIDANCE

1.58 The process of developing a proposal for restoration and

reconstruction must include an impact assessment of the various
actions being considered on the attributes of the heritage place.
Any consequent impact on the significance of the heritage place
must be carefully articulated. This procedure must extend to setting
out measures that will be taken to mitigate impacts. Using the
approach and methodology of the Guidance and Toolkit for Impact
Assessments in World Heritage Contexts is necessary for World
Heritage properties and recommended for all heritage places.

1.59 For World Heritage properties, the strategic and the operational For World Heritage properties that
plans, programmes and projects with implementation measures are perceived to be under threat,
should be reported at agreed stages in the process to the World the Operational Guidelines for the
Heritage Centre and the Advisory Bodies. Implementation of the World Heritage
Convention provide for reactive
monitoring, which is a reporting and
collaboration mechanism set up to
ensure that all possible measures
to remove threats from a property
are deployed. This implies a wide
range of actions, including: providing
information; processing, reporting
on and updating such information;
carrying out reactive monitoring or
advisory missions; and providing
technical assistance, if requested.


From left to right:
Figg. 22. a, b. Collaboration
between local population
and experts in anastylosis,
Duomo di Venzone. Stones
identified and assembled
by the local population;
numbered schema drawing
of stonework. (Source:
Franceso Doglioni)
 ICOMOS–ICCROM GUIDANCE | 39

References
UNESCO, Operational Guidelines for the Implementation of the World Heritage Convention, July 2021

Documentation
Japan Agency for Cultural Affairs, World Heritage Centre, ICOMOS, ICCROM. ‘Heritage in Urban Contexts: Impacts of
Development Projects on World Heritage Properties in Cities’: Outcomes of the workshop held at Kyushu University
(Fukuoka), January 2020.
https://whc.unesco.org/en/events/1516/

ICOMOS Global Case Study Project on Reconstruction. Matrix for the Compilation of Case Studies, 2018. https://www.
icomos.org/images/DOCUMENTS/Secretariat/2018/Reconstruction_CaseStudies/ICOMOS_GlobalCaseStudyReconstr_
Matrix_20180426.pdf

Historic England. Using Airborne Lidar in Archaeological Survey, 2018. https://historicengland.org.uk/images-books/

publications/using-airborne-lidar-in-archaeological-survey/

Historic England. BIM for Heritage: Developing a Historic Building Information Model, 2017. https://historicengland.org.
uk/images-books/publications/bim-for-heritage/

Historic England. Photogrammetric Applications for Cultural Heritage. Guidance for Good Practice, 2017. https://
historicengland.org.uk/images-books/publications/photogrammetric-applications-for-cultural-heritage/

Council of Europe. Guidelines on Cultural Heritage: Technical Tools for Heritage Conservation and Management, 2012.
https://rm.coe.int/16806ae4a9

Getty Conservation Institute. Recording, Documentation, and Information Management for the Conservation of Heritage
Places: Guiding Principles. Los Angeles, 2007. http://hdl.handle.net/10020/gci_pubs/recordim

Presidenza del Consiglio dei Ministri – Dipartimento Protezione Civile, Ministero dei beni e delle Attività Culturali,
Scheda A per il rilievo del danno ai beni culturali – CHIESE, Scheda B per il rilievo del danno ai beni culturali – PALAZZI
and related compilation manuals at https://www.regione.toscana.it/-/schede-di-agibilit-

Emergency response
ICCROM and Prince Claus Fund for Culture and Development. First Aid to Cultural Heritage in Times of Crisis –
Handbook and Toolkit, 2018.
https://www.iccrom.org/publication/first-aid-cultural-heritage-times-crisis-handbook
https://www.iccrom.org/publication/first-aid-cultural-heritage-times-crisis-toolkit

UNESCO Quito Office, Ministry of Culture and Heritage of Equador. Manual for contingency procedures in historical
archives in the event of natural disasters, 2017. https://unesdoc.unesco.org/ark:/48223/pf0000261832_eng

OCHA, INSARAG. Urban Search and Rescue at Heritage Sites, 2023.

https://www.insarag.org/wp-content/uploads/2023/04/USAR-Cultural-Heritage-Safeguard-v.9_030423.pdf

ICCROM, Svenska Postkop Stiftelsen, Principauté de Monaco, PATH: Peacebuilding Assessment Tool for Heritage
Recovery and Rehabilitation, 2021.
40 | ICOMOS–ICCROM GUIDANCE

https://www.iccrom.org/publication/path-peacebuilding-assessment-tool-heritage-recovery-and-rehabilitation

Ministry of the Interior – Italian National Fire Department. Vademecum STOP: Shoring templates and operating
procedures for the support of buildings damaged by earthquakes, 2012. Available in English and French at: https://www.
vigilfuoco.it/aspx/page.aspx?IdPage=6994

Ministry of the Interior – Italian National Fire Department. Manuale Triage Tecnico per la valutazione e il trattamento
delle criticità strutturali, 2021.
https://www.cism.it/media/filer_public/9c/5b/9c5b5994-6aa6-47fc-afc4-ace4443ccd16/manuale_triage_tecnico_
grimaz.pdf

René Teijgeler and Nina Kjølsen Jernæs. Guide on Historic Buildings and Fire in War-affected Countries, 2022.
https://fundacionfuego.org/wp-content/uploads/2022/06/Guide-on-Historic-Buildings-and-Fire-in.pdf

Impact assessment
Global Facility for Disaster Reduction and Recovery (GFDRR), European Union, World Bank, United Nations. Post-
Disaster Needs Assessments Guidelines – Volume A, 2013.
https://www.gfdrr.org/en/publication/post-disaster-needs-assessments-guidelines-volume-2013

Global Facility for Disaster Reduction and Recovery (GFDRR), European Union, World Bank, United Nations. Post-
Disaster Needs Assessments Guidelines – Volume B: Culture, 2017.
https://www.gfdrr.org/en/publication/post-disaster-needs-assessments-guidelines-volume-b-2

United Nations Development Programme (UNDP), World Bank, Global Facility for Disaster Reduction and Recovery
(GFDRR), European Union. Joint Recovery and Peacebuilding Assessments (RPBAs), 2017. https://www.preventionweb.
net/publication/joint-recovery-and-peacebuilding-assessments-rpbas

World Bank, United Nations Development Programme (UNDP), European Union. PDNA guidance: Integrating conflict
sensitivity, 2019.
https://recovery.preventionweb.net/publication/pdna-guidance-integrating-conflict-sensitivity

Global Facility for Disaster Reduction and Recovery (GFDRR), World Bank. Peacebuilding and recovery in the culture
in city reconstruction and recovery (CURE) framework: Technical notes, 2020. https://recovery.preventionweb.net/
publication/peacebuilding-and-recovery-culture-city-reconstruction-and-recovery-cure-framework

United Nations Development Group, World Bank. Joint Guidance Note on Integrated Recovery Planning using Post
Conflict Needs Assessments and Transitional Results Framework, 2007.
https://www.unocha.org/sites/unocha/files/dms/Documents/Joint%20Guidance%20Note%20on%20Integrated%20
Recovery%20Planning.pdf

United Nations Environment Programme. Integrating Environment in Post-conflict Needs Assessments: UNEP Guidance
Note, 2009.
https://www.unep.org/resources/report/integrating-environment-post-conflict-needs-assessments-unep-guidance-note

UNESCO – University of Udine, UNESCO Guidelines for Assessing Learning Facilities in the Context of Disaster Risk
Reduction and Climate Change Adaptation, volume 1: VISUS methodology, Paris 2019.
https://unesdoc.unesco.org/ark:/48223/pf0000371185.locale=en
 ICOMOS–ICCROM GUIDANCE | 41

Global Cluster for Early Recovery (GCER). Guidance Note on Inter-Cluster Early Recovery, 2016.
https://www.alnap.org/system/files/content/resource/files/main/guidance_note_-010816_0.pdf

ICCROM, INSIGHT. A Participatory Game for Enhancing Disaster Risk Governance, 2020.
https://www.iccrom.org/sites/default/files/Insights_FINAL-LAYOUT_131020.pdf

UNESCO, ICCROM, ICOMOS, International Union for Conservation of Nature (IUCN). Guidance and Toolkit for Impact
Assessments in a World Heritage Context, 2022.
https://whc.unesco.org/en/guidance-toolkit-impact-assessments/

UNESCO – World Bank. CURE: Culture in City Reconstruction and Recovery. Group position paper, 2018.
https://openknowledge.worldbank.org/entities/publication/f465176a-3d30-5440-9af9-da9dd3fedf34

ACP-EU Natural Disaster Risk Reduction Program, Global Facility for Disaster Reduction and Recovery (GFDRR), United
Nations, World Bank Group. Disaster Recovery Framework Guide. Revised edition, 2020.
https://www.gfdrr.org/en/publication/disaster-recovery-framework-guide

ICCROM. PATH – Peacebuilding Assessment Tool for Heritage Recovery and Rehabilitation. Rome, 2021.
https://www.iccrom.org/publication/path-peacebuilding-assessment-tool-heritage-recovery-and-
rehabilitation#:~:text=PATH%20%2D%20Peacebuilding%20Assessment%20Tool%20for%20Heritage%20Recovery%20
and%20Rehabilitation%2C%20is,dynamics%20in%20a%20given%20context

ICCROM. Community-based Heritage Indicators for Peace: A Tool for Measuring Peace, 2022. https://www.iccrom.
org/news/community-based-heritage-indicators-peace-tool-measuring-peace#:~:text=Community%2Dbased%20
Heritage%20Indicators%20for%20Peace%20is%20a%20sequel%20to,of%20conflict%2Dsensitive%20heritage%20
interventions.
42 | ICOMOS–ICCROM GUIDANCE

2. Organisational Factors
In this section, Guidance is presented under the following headings:

• Identification of actors
• Coordination and engagement of actors
• Linkage with broader recovery strategies
• Clarity of operational responsibilities
• The deployment of expertise and skills
• Effective use of resources
• Capacity building.

Identification of actors

2.1 Recovery also relates to social context. As well as dealing with the
direct impacts on health, well-being and living conditions, recovery
involves supporting the re-establishment of social functions. Hence, it
is essential that the full range of relevant actors be identified and the
role of each in the response and post-trauma recovery process for
heritage places, including World Heritage properties, be established.

2.2 The displaced, including the diaspora of heritage practitioners, should At a minimum, the actors would need
be given special consideration. The possibility of recovery of the to include: the responsible sections
significance of heritage places, including through their reconstruction, within the States Parties’ governmental
depends on maintaining some sort of relationship alive in the minds of structures; the emergency services and
the displaced, including the younger generations. This should be part other agencies; cultural institutions;
of an overall strategy for cultural recovery. local communities; and key stakeholders
and rights holders such as traditional
authorities, property owners, key
experts and knowledge holders.

Coordination and engagement of actors

2.3 Effective response depends on including both people and their During a protracted crisis, the
heritage practices. The establishment of robust communication relationship between a cultural
networks among international agencies and implementing bodies, heritage place and its community is
national and local authorities, residents, owners and relevant often disrupted, sometimes for years.
experts and craftspeople is an essential element in heritage
management. In the event of a disaster, working relationships and The communication should be managed
communication networks need to function effectively where normal through regular meetings, consultations
communications may be compromised. and the formation of both community-
led and expert committees.
 ICOMOS–ICCROM GUIDANCE | 43

2.4 It is especially important to coordinate response with civil protection

and emergency coordinators. Recovery funds are channelled
through the emergency response or relief and recovery coordinators
appointed by the national authorities. This coordination enables the
inclusion of heritage places and World Heritage properties into the
comprehensive priority intervention lists.

2.5 Coordination is also needed in cross-disciplinary knowledge

exchange and information sharing, particularly in the area of
hazards, vulnerabilities and exposure characterisation. Depending
on the national organisation, the recovery process should
establish coordination among agencies responsible for security,
civil protection, search and rescue, fire protection, health, and
humanitarian clusters, particularly in the early phases of recovery.

2.6 Robust and inclusive coordination mechanisms are needed to Measures to bring about such
ensuring the effective engagement of the affected population in engagement must take into account the
decisions affecting the future of their areas. diversity that exists within populations,
encouraging participation and avoiding
exclusion or marginalisation. Effective
engagement of the affected population
in the recovery process requires that all
groups participate in shaping decisions
affecting the future of their areas and
heritage places. It extends to engagement
in appropriate restorative actions.

2.7 In seeking to benefit from the potentials offered by international

cooperation, establishing, strengthening and coordinating liaisons
with relevant international agencies, other states’ cooperation
entities and NGOs will be an important consideration.


Fig. 23. Consultation meeting in the
reconstruction of Temple of Nuestra
Señora de la Asunción, San Luis Potosí,
Mexico (Source: Diego Ángeles)
44 | ICOMOS–ICCROM GUIDANCE

Linkage with broader recovery strategies

2.8 Post-trauma heritage protection and the establishment of

appropriate programmes for recovery will place additional
demands on existing institutional arrangements. Increased
cooperation and consultation with local organisations, additional
interactions between agencies and authorities and essential
collaborations with international bodies are among the consistent
features of recovery programmes. It is important that institutional
arrangements are subject to review from the perspective of how
they can respond to pressure arising from the pursuit of a prompt
recovery.

2.9 The link between the retention of attributes and the recovery of Even during ongoing events or conflict
their capacity to convey heritage significance or OUV and the situations, emergency response and
wider recovery process should, as much as possible, be planned in post-trauma interventions should also
advance. be planned for, where feasible.

2.10 Given the complexities involved, tensions may arise between Recovery strategies, action plans
conflicting priorities. Decisions about the most appropriate and interventions need to harness
approach/strategy for recovery of certain attributes of heritage opportunities offered by cultural
places and World Heritage properties damaged during traumatic heritage recovery. Doing so will
events may need more time for reflection than the recovery or mean taking into account the time
reconstruction of infrastructure or other assets. At the same time, needed to develop thoughtful and
the recovery of cultural heritage may play a key role in enabling shared recovery options, including
or facilitating larger processes of recovery. Hence, appropriate reconstruction, where this enables
timeframes for decision-making about definitive recovery or attributes’ continued conveyance of
reconstruction of heritage attributes need to be agreed within the heritage significance, and for OUV to
framework of larger recovery processes. be sustained, recovered, revived or
re-established.

2.11 The interplay of these factors will vary from case to case and as
circumstances dictate. There are also implications in terms of
risk management and preparedness. These are outlined below in
Section 3: Outcomes: Disaster Risk Reduction and Sustainable
Recovery (page 51).
 ICOMOS–ICCROM GUIDANCE | 45


Fig. 24. San Pedro de Alcántara, O’Higgins
Region, Chile. Community meeting in
San Pedro about the Heritage Rebuilding
Programme, with representatives of MINVU
and CMN. (courtesy of SEREMI MINVU, 2011)

Clarity of operational responsibilities

2.12 Effective response to trauma demands clear lines of responsibility, The understanding of impacts and the
in which the roles of competent authorities, agencies and other expectations for recovery will vary
stakeholders are set out both in early response and throughout the widely among stakeholders.
recovery process. The definition of roles must include what can be
contributed by affected populations. Where the vulnerability of
heritage places is established, such information must be a priority
in public awareness measures.

2.13 It is essential that decisions are transparent and prioritise Mechanisms must be in place to ensure
inclusiveness. that perspectives and values are
understood, and that their relevance
to the conservation, maintenance,
restoration or reconstruction of
attributes is articulated and given
appropriate expression in the recovery
process.

2.14 Protocols for the collection and sharing of data must be established.
All data on the attributes of heritage places, and particularly of
World Heritage properties, must be accessible by States Parties,
central and local authorities responsible for their management and
all those involved in the recovery process, in the development of
action plans and in their implementation.
46 | ICOMOS–ICCROM GUIDANCE

The deployment of expertise and skills

2.15 Effective response is essentially interdisciplinary and inclusive. The inclusion of local knowledge,
This puts a high priority on clarity of relationships, but also on the skills and capacities is critical, and
availability of adequate expert knowledge and skills from specialist the engagement of local stakeholders
individuals, institutions and the local community. Effective in goal setting and programme
response requires active knowledge-sharing, capacity-building, development is crucial for effective
organisational flexibility and the ability to respond to changing recovery and improved preparedness
situations. and resilience at the heritage place.
Organising training in First Aid to
Cultural Heritage in Times of Crisis
(see References, page 39) can
increase the effectiveness of the
emergency response.

2.16 While expertise in building construction and structural engineering Traditional structures or materials
can be crucial in many instances, all too often experts involved might include, for instance, traditional
in emergency stabilisation and in recovery and reconstruction masonry, wood or adobe constructions,
responses for heritage places do not hold the necessary knowledge or flood resistance systems.
or experience of traditional structures or the use of traditional
materials. As this can result in applying structural paradigms and
standards that are not appropriate for the structural behaviour
and construction logic of these types of buildings, local building
knowledge and expertise should be involved as part of the process.

2.17 It is of the utmost importance that expertise in construction

and structural engineering involved in the recovery process
is appropriate to the structures being recovered, and that
interventions, whether involving restoration or reconstruction, are
specific to the building traditions of the place. The input of local
operatives, traditional craftsmanship and techniques into recovery
efforts may be critical in this regard. In addition, the participation
of the affected populations in reconstruction activities may provide
opportunities to build or strengthen locals’ capacities and foster a
sense of ownership and connection with their cultural heritage.

2.18 The experience and expertise of outside institutions, agencies Outside institutions might include,
and specialists make an essential contribution to informed for instance, national or international
decision-making. Together with the contribution of the organisations, multilateral donors and
international heritage community and its institutions, it comprises agencies.
a potent resource.
 ICOMOS–ICCROM GUIDANCE | 47


Fig. 25. Cooperation in action: carpenter
guides work in reassembling a bridge
bean frame, Xuezhai Bridge, Taishun
County Wenzhou City, Zhenjiang
Province, China (Source: Huang Zi)

Effective use of resources

2.19 Resources comprise financial allocations, the availability of

expertise and equipment, and an affected community’s knowledge,
skills and management practices. Within the resources assigned
to disaster response, adequate provision must be made to address
heritage impacts, and specifically those that affect World Heritage
properties. Such provision should address the range of situations
encountered, as described above.

2.20 In the first instance, provision for emergency interventions to This provision would address
protect the attributes of World Heritage properties and heritage documentation, stabilisation, salvage,
places must be made within emergency funding allocations, and storage, implementation of preventive
clear arrangements must be in place so that they can be promptly measures and safe-keeping.
brought into play when response mechanisms are triggered.

2.21 As official responses gain momentum, and recovery and

reconstruction get under way, it is important to ensure that local
capacities and commitment continue to be deployed and are not
sidelined, since they are fundamental to recovering and sustaining
heritage significance or OUV and the recovery process in the long
term. Local professionals and craftspeople need to be recognised,
empowered and involved in the reconstruction. Such involvement
must be prioritised in recovery projects supported through
international and foreign funding.
48 | ICOMOS–ICCROM GUIDANCE

2.22 Disasters create changed social and economic realities. They The capacities of private interests
provide opportunities for interventions that can have positive or may be potential resources that can
negative implications for maintaining the heritage significance be deployed positively in this regard,
of places. Therefore, whenever proposals for new development but they may also cause pressures
are advanced in catastrophe-stricken heritage places, these need for change to exploit the post-event
to be assessed against their ability to support restoring heritage situations for real estate operations
significance. that could not have been advanced
prior to a disaster.

2.23 Guidelines for international cooperation agencies and large Harnessing the capacities of large
companies on how to intervene in the respect of local context, companies or overseas agencies in the
heritage significance and OUV should be developed and made interests of rapid reconstruction carries
available. the risk of substituting imported
labour and modern technologies for
indigenous resources and traditional
methods.

2.24 Existing post-disaster and post-conflict recovery guidance

documents should include essential information on resource
organisations and management. This can also be helpful in planning
cultural heritage recovery and reconstruction, although some of the
suggested processes and timeframes may need to be adapted to
the specificities of heritage places’ recovery.


Fig. 26. Careful integration of materials
and techniques in reconstructing the
Main House or Muzibu Azaala Mpanga,
Kasubi Tombs complex, Kampala,
Uganda (Source: Jonathan Nsbuga)
 ICOMOS–ICCROM GUIDANCE | 49

Capacity building

2.25 The acknowledged importance of heritage to community identity Initiatives to increase knowledge
must be expressed in the active engagement of communities in the and engagement among the local
care, use and maintenance of their heritage. population, and the conscious
deployment of local resources
in ongoing administration and
custodianship, will increase possibilities
of recovering both tangible and
intangible attributes in the aftermath
of disaster.

2.26 Capacity-building and training initiatives for post-event emergency Based on its experience in capacity
personnel on the importance of respecting, salvaging and stabilising building, ICCROM observes that when
damaged heritage in the immediate aftermath of a catastrophic capacity has been created or enhanced
event are crucial, in order to guarantee that heritage is given in advance of catastrophic events,
adequate consideration in the emergency phases. response has been more effective.

2.27 In parallel, providing training to heritage professionals on post-

event risks and safety protocols in emergency situations is essential
to establish a common ground for dialogue and cooperation
between the heritage sector and the post-event emergency sector.
Capacity-building initiatives that empower the local community to
actively participate in the recovery process need to be prioritised.

2.28 Specialised training programmes that enhance the skills of

traditional craftspeople should be a part of capacity-building
programmes. The training should be tailored to address the unique
challenges and requirements of the post-disaster context.

2.29 Capacity and new knowledge built through the recovery process
must be developed and appropriated by local actors. Any
international and national agency implicated in post-trauma
recovery and reconstruction must ensure that the capacity and skills
are enhanced at the site level throughout the process.
50 | ICOMOS–ICCROM GUIDANCE

2.30 Establishing platforms for gathering and exchanging experiences

in capacity building for post-event recovery from international or
national organisations, civil society and both national and local
professional and non-governmental organisations can provide a
good basis for further experience-based guidance.


Fig. 27. Workshop in applying mud
stucco, Quinta de Tilcoco, San Pedro
de Alcántara, O’Higgins region,
Chile (Source: SEREMI, MINVU)

References
UNESCO, Operational principles and modalities for safeguarding intangible cultural heritage in emergencies, no date.
https://ich.unesco.org/doc/src/Operational_Principles_and_Modalities_for_Safeguarding_ICH_in_Emergencies_EN.pdf

International Finance Corporation (IFC), Stakeholders Engagement: A good practice handbook for companies doing
business in emerging markets, 2007.

Initiative for Climate Action Transparency (ICAT). Stakeholder Participation Guide, 2021.
https://climateactiontransparency.org/our-work/icat-toolbox/assessment-guides/stakeholder-participation/

International Labour Organization (ILO). Guidance Note 4.5: Stakeholder engagement, 2020.
https://www.ilo.org/wcmsp5/groups/public/---ed_mas/---eval/documents/publication/wcms_746724.pdf

Taskforce on Nature-related Financial Disclosures (TNFD). The TFND Nature-related Risk and Opportunity Management
and Disclosure Framework. Draft Guidance on Engagement with Affected Stakeholders, 2023.
https://framework.tnfd.global/wp-content/uploads/2023/03/23-23882-TNFD_v0.4_Annex_4.9_v7-1.pdf

United Nations Development Programme (UNDP). Guidelines for Community Participation in Disaster Recovery, 2020.
https://www.preventionweb.net/media/83531/download?startDownload=true

World Bank. Financing Post-Disaster Recovery and Reconstruction Operations: Developing an Institutional Mechanism to
Ensure the Effective Use of Financial Resources. Washington, DC, 2013.
http://hdl.handle.net/10986/22418
 ICOMOS–ICCROM GUIDANCE | 51

3. Outcomes: Disaster Risk Reduction and Sustainable Recovery

3.1 A Disaster Risk Management (DRM) plan should be prepared by DRM plans will address such matters
responsible bodies for all at-risk places of heritage significance. as: provisions for evacuation and
Typically, DRM plans will address disaster and conflict forecasting safe refuge; the listing of significant
and prevention, early warning mechanisms, risk mapping and risk assets and their related protection
reduction – including climate action, emergency response and requirement; the identification of key
follow-through actions – and will identify the responsible agencies personnel and their contact details;
at each stage. contact provisions for critical first
The compilation of necessary information may require engagement responders; the identification of access
with community leaders and local organisations. This type of arrangements for emergency services;
information should be compiled as a dossier and made available to and security arrangements for movable
key personnel and emergency services. assets.

3.2 To be effective, disaster risk reduction needs to become a Training in First Aid to Cultural
widespread attitude, a specific component of heritage protection Heritage in Times of Crisis may help in:
culture, to be developed through exercise and practice. To this end, activating emergency response; setting
appropriate training provision for key personnel and the emergency up coordination mechanisms; carrying
services should be put in place. out in a phased manner different
types of post-event damage, risk and
needs assessments; stabilisation and
documentation of different types
of heritage; managing debris; and
planning recovery. This would increase
the effectiveness of the emergency
response.

3.3 In this context, the documentation of tangible and intangible

attributes of such heritage places becomes even more important.
Particularly in the case of World Heritage properties, States Parties
should review their current documentation from the perspective of
its comprehensiveness (anticipating possible damage or loss) and
existing provisions for storage and retrieval, both in emergency
situations and in the longer term. Particular attention should be paid
to requirements for updating systems. It is recognised that this is a
very major task.
52 | ICOMOS–ICCROM GUIDANCE

3.4 States Parties are encouraged to revisit and, where necessary, The UN disaster and conflict
update and modify the frameworks in place for the protection of forecasting and early warning
heritage to take account of the potential impacts of disaster. Such system should be consulted regularly
review may highlight where new provisions in law or regulation are for the World Heritage sites and
required. communicated to the possibly affected
States Parties. The UN Secretary-
General officially introduced the Early
Warnings for All Initiative (EW4All)
during the COP27 gathering in Sharm
El-Sheikh in November 2022. The
objective of this initiative is to ensure
global coverage of an early warning
system by the conclusion of 2027.

To ensure its effectiveness and

comprehensiveness, an ideal early
warning system consists of four
interconnected components:

• understanding and awareness

of risks;
• monitoring and alert services;
• effective dissemination; and
• the ability to respond
appropriately to warnings.

3.5 Standardised procedures for efficient and effective consultations

and approval procedures should be an integral aspect of the risk
preparedness mechanisms provided by the State Parties.

3.6 Guidance on general and targeted disaster prevention and

preparedness planning in advance of traumatic events, along with
strategies when events unfold, is provided in several guidance
documents prepared by national and international organisations,
based on their accumulated experience in addressing emergencies.
Ensuring that these documents are well known among heritage
institutions and professionals through training and capacity-
enhancement activities is key to improving post-event response and
creating an environment conducive to resilience building.
 ICOMOS–ICCROM GUIDANCE | 53


From top to bottom:
Fig. 28. The resumption of worship in
the reconstructed Temple of Nuestra
Señora de La Asunción, San Luis Potosí,
Mexico (Source: Renata Schneider)
Figg. 29. a, b. Discovery during
conservation of significant decorative
detail that had been concealed under a
floor, Palazzo Carli Benedetti, L’Aquila,
Italy (Source: Carla Bartolomucci)
54 | ICOMOS–ICCROM GUIDANCE

Risk assessment and disaster recovery planning

3.7 Given the changing nature of the threats to heritage places and
World Heritage, each State Party should ensure that the risks to
properties under their care have been adequately identified, and
that risk assessments are routinely updated. Risk assessment
applies to both tangible and intangible attributes.

3.8 As required by the World Heritage Committee, all listed World

Heritage properties should now have a Statement of Outstanding
Universal Value, based on properly identified attributes and
submitted to the World Heritage Committee.

3.9 Where management plans are deficient in their descriptions of Management plans need to specify
attributes and their exposure to risk, they should be updated as a actions to be taken to manage or
matter of urgency. mitigate risks.

3.10 Management systems and planning instruments need to incorporate Ongoing review and revision of
disaster management considerations that are appropriate to the management plans must take explicit
identified risks of the individual heritage places concerned. account of identified risks, including
slow-onset risks associated with
urbanisation – for example, drainage
changes, paving, tourist facilities –
which may be obstacles to response
and potential sources of risk.
 ICOMOS–ICCROM GUIDANCE | 55

3.11 The need for such preparedness and disaster risk reduction is Considering the gaps in risk data and
underlined by the uncertainties surrounding the impacts of climate risk drivers (such as climate change),
change, which may alter environmental conditions in ways that participatory vulnerability and capacity
affect both human activities and the performance and resilience of assessments at heritage places are
built structures. essential. At the same time, a multi-
hazard and scenario-based approach
to risk mitigation and emergency
preparedness is needed.

Custodians should be encouraged

to move away from single-hazard-
based risk mitigation to help enhance
disaster resilience. Equally important
is to consider the conflict risk and
understand how a heritage site may be
exposed in the case of conflict.

3.12 For World Heritage properties, preparedness and response

considerations and mechanisms should be integrated by States
Parties into the management plans as an amendment and then
submitted to the World Heritage Committee for review.


Fig. 30. Flood wall built as
protection against future events,
Wachau Cultural Landscape,
Austria (Source: M. Schimek)
56 | ICOMOS–ICCROM GUIDANCE

Communication platforms and protocols

3.13 It is necessary to make provision for coordination and information-

sharing between agencies and key individuals within the jurisdiction,
both regionally and internationally. This is a key component in
preparedness for anticipated events, making provision for post-event
intervention and improving the capacities of society to respond
appropriately – in other words, to improve the resilience of the
system as a whole.

3.14 Information capture and storage provisions should be reviewed to

ensure access where and when necessary. The resources of UNESCO
and the Advisory Bodies are available to assist in developing
effective national and international communication networks.

Embedding cultural heritage protection

3.15 Provision for the protection of heritage assets must be embedded The integration of knowledge and
in wider recovery processes. This also applies to the preparation of practices from local communities
plans for sustainable development in which job creation is an integral plays a crucial role in building
part of environmental sustainability. resilience towards disasters in spatial
and economic planning, particularly
in historic places, urban centres, and
cultural landscapes. By incorporating
traditional knowledge systems, the
planning process becomes more
sustainable.

3.16 With the inclusion of protection requirements in targeted heritage Investing in education and capacity-
training programmes, the knowledge and skills of operatives faced building programmes promoting
with response to disasters will be enhanced. the transmission of traditional and
local knowledge and practices is
crucial. Likewise it is important to
support initiatives that empower
youth, strengthen cultural identity
and enhance their participation in
recovery processes. This ensures
the intergenerational transfer of
traditional knowledge systems and
practices that can build or sustain
resilience.
 ICOMOS–ICCROM GUIDANCE | 57


Fig. 31. The inner courtyard of Palazzo
Carli Benedetti, L’Aquila after restoration
(Source: Carla Bartolomucci)

References
UNESCO, ICCROM, ICOMOS, IUCN, Managing Disaster Risks for World Heritage, 2010. https://whc.unesco.org/
document/104522

UNESCO, ICCROM, IUCN, Enhancing our Heritage Toolkit 2.0: Assessing management effectiveness of World Heritage
properties and other heritage places, in press .

ICCROM, Canadian Conservation Institute, A Guide to Risk Management of Cultural Heritage, 2016.
https://www.iccrom.org/sites/default/files/Guide-to-Risk-Managment_English.pdf

World Meteorological Organization, Early Warnings for All. The UN Global Early Warning Initiative for the
Implementation of Climate Adaptation Executive Action Plan 2023–2027, 2022.
https://library.wmo.int/index.php?lvl=notice_display&id=22154

World Bank, Disaster Preparedness for Cultural Heritage. EAP DRM Knowledge Notes; No. 14. Washington, DC, 2010.
License: CC BY 3.0 IGO http://hdl.handle.net/10986/10125
58 | ICOMOS–ICCROM GUIDANCE

 Fig. 32. Cultural Heritage Recovery Framework

OUTCOMES: ENHANCED
ORGANISATIONAL HERITAGE
RESILIENCE and
FACTORS FACTORS
DISASTER-RISK REDUCTION

DOCUMENTATION OF
RESOURCE
Prior to impacting event
RISK ASSESSMENT &
DISASTER PLANNING
PREPARATORY ACTIONS

Vulnerability and
ACTORS capacity assessments
IDENTIFICATION & DOCUMENTATION OF
ENGAGEMENT CASTROPHIC EVENT Multi-hazard risk
scenarios
LINKAGES WITH ACTIONS FOR
Capacity Building

BROADER RECOVERY RECOVERY PLANNING Capacity Building COMMUNICATION

STRATEGIES PROTOCOLS
Emergency Response
CLARITY OF and Initial Damage Social change
OPERATIONAL assesmsent
Peace building
RESPONSIBILITIES Documenting Effects of
the destructive event EMBEDDING
DEPLOYMENT OF CULTURAL HERITAGE
EXPERTISE AND SKILLS Assessing impacts on
PROTECTION
heritage significance
EFFECTIVE USE OF and OUV Resilience
RESOURCES Heritage protection Monitoring and
RECOVERY STRATEGY

and Reconstruction in evaluation plans

recovery processes

Approvals and consents

Implementation of the
Strategy: Instruments
ICOMOS-ICCROM GUIDANCE

ON POST- DISASTER AND POST-CONFLICT

RECOVERY AND RECONSTRUCTION

In addressing the recovery and reconstruction of heritage places, the Guidance builds upon the
body of thought and practice developed by ICOMOS and ICCROM over decades of their activity.
This Guidance aims to help relevant actors affected by destruction at heritage places of cultural
significance to set up sound decision-making processes for recovery and reconstruction. It sets
out a framework within which thorough, informed and participative decision-making can be
undertaken in recovery. Recovery is understood to include reconstruction, involving tangible and
intangible attributes of heritage places and World Heritage properties. The Guidance aims to
suggest a context-attentive recovery approach that enables the perpetuation of the significance
of heritage places and Outstanding Universal Value (OUV) of World Heritage properties to the
greatest extent possible.

ICOMOS International Secretariat

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Email : [email protected] Email: [email protected]
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Published by ICCROM (Regional Office, Sharjah) and

ICOMOS (International Council of Monuments and Sites).

© ICCROM and ICOMOS, 2023 9 789290 773429

2023 ICOMOS-ICCROM GUIDANCE ON POST- DISASTER AND POST-CONFLICT RECOVERY AND RECONSTRUCTION