Vilnius OUV Management system
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ANNEX I to the response of the Republic of Lithuania to the Decision 33 COM 7B.112 Management system for the Outstanding Universal Value of Vilnius Historic Centre – a World Heritage site 1. Legal background for management ......................................................................... 2 1.1. The Laws ..................................................................................................................................... 2 1.2. Strategic planning documents ...................................................................................................... 4 1.2.1. Vilnius Old Town Revitalisation strategy............................................................................... 4 1.2.2. Vilnius strategic plans............................................................................................................. 5 1.3. Vilnius official (master) plans ..................................................................................................... 5 1.4. Special plans ................................................................................................................................ 6 1.5. Revitalisation programme ........................................................................................................... 8 1.6. Conclusion ................................................................................................................................... 9 2. Draft retrospective Statement of Outstanding universal value ............................. 10 2.1. 2.2. 3. Draft Statement...........................................................................................................................10 The attributes of the outstanding universal value .......................................................................12 Management of the OUV of Vilnius Historic Centre ............................................ 14 3.1. Background and purpose for determining OUV management system .......................................14 3.2. Structure of the OUV management system ................................................................................14 3.2.1. Territorial integration of management ...................................................................................14 3.2.2. Horizontal, inter-institutional and multidisciplinary interaction ............................................15 3.2.3. Vertical coherence of management ........................................................................................15 3.2.4. Coherence between state institutions and local government and the civil society .................15 3.3. Formation, implementation and review of the OUV management system .................................15 3.4. Instruments for implementation of the guidelines ......................................................................16 3.4.1. Periodical (annual) report ......................................................................................................16 3.4.2. Actions taken in the site and the joint list of actions .............................................................16 3.4.3. Annual Integrated report of actions taken in the last period ..................................................17 3.4.4. Periodic reports to the World Heritage Committee ...............................................................17 1 1. Legal background for management In this chapter laws and bylaws are listed along with their provisions essential to the management of the site; institutions, that have a role in management, and their responsibilities, and spatial planning documents and their provisions that regulate safeguarding and development of the site. 1.1. The Laws Since restoration of the Independence of Lithuania in 1990 the issue of safeguarding and nurturing the cultural heritage has been one of the most important announced priorities of the Lithuanian State: Law on the basics of national security1 of 1996 lists cultural heritage among the main objects of national security. Until February 1, 1995, the subject was legislated in the Law on protection and use of monuments of history and heritage, adopted in 1997, with amendments of 1984 and 1990, the latter introducing the concept of private ownership. In the same year, 1990, there was adopted a provisional Law on the Inspection of cultural heritage2, founding an institution responsible for cultural heritage under the parliament. The Government of Lithuania also adopted the Resolution „On ensuring protection of unlisted heritage objects“ that acted from 1990-12-11 to 2004-11-23. This system was completely revised in 1995, when the Law on Protection of Immovable Cultural Heritage3 was adopted. This law regulates protection, research, use, education and public use of immovable cultural heritage. It introduced many new concepts and it established a much more complex, three-tier hierarchy of management and responsibilities. Since 1995 there exists a Commission of Cultural Heritage at the Seimas (Parliament) of Lithuania. Its members are appointed separately by the Seimas, the President and the Government. This Commission is a collective expert on the policy of cultural heritage; The state administration of the protection of cultural heritage is organised by the Minister of Culture, who is responsible for the whole field, he also delegates responsibilities to various departments and institutions under the Ministry Currently such an institution is Department of Cultural Heritage under the Ministry of Culture. The Department implements all state management of the cultural heritage. On the level of local authorities, each municipality may have a division for cultural heritage. Various bylaws are enacted by the Government (Cabinet of Ministers), the Minister of Culture, the Department for cultural heritage, and municipal council. This Law, whereas new in principle, has been amended and complemented 1997-03-27, 1997-07-03, 199709-25, 2000-05-04, 2001-04-19, 2002-06-25, 2002-12-10, 2005-04-19 (new revision), 2007-07-19, 2007-07-21, 2008-05-08. Following this Law, Vilnius Old Town has been inscribed into the National List of Cultural Heritage. 1 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=373613 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_bin?p_id=430 (in Lithuanian) 3 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=326112 2 2 Following the revision of 2005, a Law on State Commission of Cultural Heritage4 was adopted, enacting it on 2005-01-01. This Law determines that the said Commission is an expert and advisor to the Seimas, the Government and the President on the issues of policy of Cultural heritage policy and its implementation. This Commission is founded, reformed, liquidated, and its statutes are approved by the Seimas, and the Commission is accountable to the Seimas. The tasks of the Commission are: take part in determining policy and strategy of protection of cultural heritage render proposals for state institutions in this regard; assess programmes and budgets implementing policy and strategy of cultural heritage; discuss and approve proposals to list buildings, sites, and movable artefacts, or withdraw their protection by the State; evaluate annual reports of designated state institutions that protect cultural heritage and activities of the local government institutions related to protection of cultural heritage; draft legislation related to protection of cultural heritage, etc. Thus this Commission has a big influence on the management of the Vilnius Old Town through its conclusions and recommendations. 1993-11-09 there was adopted a Law on Protected areas5. It regulates public interaction on protected areas, establishes a framework system and legal basis for foundation, protection and management of these areas and activities therein. It has been amended and complemented 1995-07-22 and 2000-07-19, and a new revision was enacted on 2001-1228. This Law stipulates that the management plans for areas inscribed onto UNESCO World Heritage List must be approved by the Government (Article 24 part 3). On the territory of the Vilnius Old Town there has been established a State cultural reserve of the Castles of Vilnius, founded by a resolution of the Seimas on 1997-08-01 and managed by the direction of the reserved. Many management functions of this reserve are implemented following this law. 1995-12-30 there was adopted a Law on Territorial Planning6. It was amended and complemented 1997-07-09; 1997-10-24; 2000-04-26; 2000-05-24; 2000-10-31; 2001-0101; 2001-05-09; 2003-05-01; 2004-05-01 (new revision); 2004-10-16; 2006-06-13; 200607-27; 2007-04-05; 2008-01-24; 2008-04-30; 2008-11-25; 2010-07-01; 2010-10-01. This Law regulates territorial planning in Lithuania, and the obligations and rights of the natural persons, legal persons, governmental and municipal institutions in this process. It establishes the types of territorial planning: general (common), special and detailed (local) and the levels of planning. Indirectly related laws affecting the management of the Old Town are the Law on Protection of Movable Cultural Property7 was adopted on 1996-02-15; new revision was enacted 2009-07-01; and Law on Folk Products8, enacted from 2008-01-01. Various other laws also include provisions that may be important for management of the Old Town: Law on Environmental protection9, Law on Land10, Law on Construction11, 4 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_bin?p_id=243076 (in Lithuanian) http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=300377 6 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=343407 7 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=350863 8 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_bin?p_id=301365 (in Lithuanian) 9 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=377606 10 http://www.litlex.lt/Litlex/eng/Frames/Laws/Documents/174.HTM 11 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=312477 5 3 Law on Environmental Impact Assessment of the Proposed Economic Activity12, Law on Local Self-Government13 and the bylaws implementing these laws. The following international conventions, ratified by Lithuania, influence management of the Vilnius Old Town and its Outstanding Universal Value: - Convention for the Protection of the World Cultural and Natural Heritage, 1972. - European convention on the protection of the archaeological heritage (revised), 1992 Convention for the Protection of Cultural Property in the Event of Armed Conflict, 1954 Convention for the safeguarding of the intangible cultural heritage, 2003 UNIDROIT Convention on Stolen or Illegally Exported Cultural Objects, 1995 1970 Convention of the UNESCO on the Means of Prohibiting and Preventing the Illicit Import, Export and Transfer of Ownership of Cultural Property 1985 Convention for the Protection of the Architectural Heritage of Europe UNESCO Convention on the Protection of the Underwater Cultural Heritage, 2001. - 1.2. Strategic planning documents On 2005-06-05 the Resolution of the Government of Lithuania „On approving the rules of preparing and adopting the strategic planning documents for protection of immovable cultural heritage14“ was enacted. It stipulates that the Strategic planning documents are planning documents for properties of immovable cultural heritage: sites, buildings and their protection zones that determine priority goals and actions, measures of protection and management, the sequence of their implementation, needs for funding, and responsible institutions. This Resolution specifies that the organisers of heritage management are the Department of Cultural Heritage under the Ministry of Culture and administrations of various protected areas. It approves the following types of the documents of strategic planning: Assessment of management effectiveness, Heritage protection audit, Monitoring programme, Heritage management plan, Objective-oriented programme, Action plan. 1.2.1. Vilnius Old Town Revitalisation strategy Vilnius Old Town Revitalisation strategy15 was developed for World Bank funding and adopted by the City Council, the Government of Lithuania, and endorsed by UNESCO in 1996. The strategy contains a vision for revitalisation, a view on history and heritage values, analysis of the situation. It proposed a revitalisation strategy and actions, institutional structure, financial implementation plans and priorities for public investment. Whilst many proposals of the strategy have been implemented it remains enacted. Key long term guiding principles suggested in the document: Balance and integration of preservation and development, Mix of functions, and Public-private partnership remain valid today. 12 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=362355 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=389588 14 http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=256864 (in Lithuanian) 15 http://www.vsaa.lt/strat/vilnius2/gb/index.htm 13 4 According to conclusions of analysis, there have been proposed to upgrade planning and implementation capacity of the municipality by an array of measures: identify heritage values, take care of their protection, marketing and integration into the cultural, economic and social life of community; immediately develop a legal and administrative system for property development and management of the public assets in the Old Town, establish priorities for investment in infrastructure, reform the structure of the municipal services, uniting all divisions of planning and issuing permits in the Old Town, use scarce state support to attract private investment and looking for common goals – sustainable development in the Old Town, create a background for coordination of the citizen initiative, find means to support them, and establishing dedicated organisations for managing the Old Town revitalisation programme and implementing the state support . Supported by this strategy, Vilnius Old Town Renewal Agency16 was founded in 1998. Since adoption of the strategy the Government of Lithuania annually allocated significant funding to revitalisation of the Old Town (see Programmes below). 1.2.2. Vilnius strategic plans The City council of Vilnius adopted the first strategic plan for the city in 2002 for a period until 201117. The vision of that plan the emphasis was put on a new economy, progressive society, and authentic environment, in which new urban development is in harmony with abundant natural and cultural heritage. The plan established 4 priorities, one of them being to increase international competitiveness of Vilnius, by achieving several goals and implementing a number of tasks, such as „preserving authenticity of Vilnius historic Centre, increasing its attractiveness for living, business, creativity and tourism“. 2010-11-24 the City council approved the new strategic plan for 2010-2020. Here, along with necessity of safeguarding the tangible heritage, emphasis has been put on actions „to ensure traditions of continuity in state, celebration, ethnic culture, and intangible heritage“ and „nurture multicultural heritage“. One of the strategic objectives is: „To use the potential of the cultural heritage in effective and sparring manner“ and underlying tasks such as „Safeguard, manage and use cultural heritage “, and „Protect the authenticity of the Vilnius Old Town and increase its attractiveness“. In the context of managing the value of the Old Town there is a goal of „High quality of the delivered services and implemented functions“ and an underlying task „to ensure close international and inter-institutional collaboration“. 1.3. Vilnius official (master) plans The first official plan for Vilnius was approved in 1998. One of the main tasks in that plan was to preserve Vilnius Old Town – a World Heritage site. In the solutions of the plan it was proposed to speed up the implementation of the Old Town regeneration project and the Revitalisation strategy, to prioritise rebuilding of the Lower Castle and restoration of the City wall, to retain residential uses in the Old 16 17 http://www.vsaa.lt/index_en.htm http://www.vilnius.lt/vmsp/en/pradzia.html 5 Town, targeting not less than 40% of the floor space, to support foundation of home owner associations in the area, to make the activities of the Renewal agency more effective, and that development projects and management work would conform to all heritage protection requirements, would retain authenticity and thus create preconditions for nurturing the Old Town. To attain these goals, it was proposed to amend and renew the Old town revitalisation programme, to relate the annual budget of the City to the long term revitalisation programmes, and to establish a support fund for revitalisation of the Old Town. In the current plan approved 2006-1218 to 2015 part no. 6 is dedicated to the Cultural values. Here, the Old Town is denominated as „the most important urban value of the City“. In the buffer zone it is attempted to retain the visual relationships among the protected areas, valuable views, panoramas and silhouettes by capping the height of the new buildings and the built area ratio to land. According to this plan, in the buffer zone tall buildings may not be erected. „In these areas new building may only be erected to reconstruct the destroyed urban plan and spatial structure or in continuation of the traditional principles of space formation.“ When planning new construction in the buffer zones there must be an analysis of their visual impact on the protected areas carried out. Should these new buildings be discerning from the immediate environment in their height or volume, the analysis includes views from Old Town viewing control points and from important public spaces. The main provisions for safeguarding the cultural value of urban areas are detailed and implemented through special protection plans of these areas. Management and use regulations are detailed in local protection regulations, which must be elaborated for all immovable heritage. 1.4. Special plans In 1992 there were a concept for Old Town regeneration and a plan of plots created, mostly catering for reconstruction of the spatial and architectural shape of the Old Town. In 2003 the Minister of Culture approved Regulation on the Protection of the Vilnius Old Town19. This Regulation implements the provisions of the Law on Protection of Immovable Cultural Heritage and establishes rules for maintenance, use and management of the constituent parts of the Old Town. The Regulation consists of 6 parts: General part and Part 1. General provisions. The value of the Old Town. The composition, size and other quantified data of the Old Town. The contents of the regulation; Common rules for protection. The regulated activities in the area of the Old Town; 18 19 www.vilnius.lt/doc/Vilnius%20planning.pdf http://www.heritage.lt/vln_regl/index.htm (in Lithuanian) 6 Part 2. Special rules for protection of the different historic zones (zone 1: the Castles; zone 2: historic core; zone 3 – historic suburbs); Part 3. Requirements for protection, use and management of the historic parts (10 parts), inner spaces or their sequences; Part 4. Requirements for single objects or their parts. This part is frequently updated on the results of monitoring, after completing conservation works, or when individual regulations for buildings, complexes or ensembles are approved, or when the green areas change; Part 5. Frequently complemented by researching the cultural layers underground, and when the individual regulation for this cultural property is approved, exploring underground parts of buildings, their remains, other elements of the area, and establishing their cultural value. The final data are used for correcting parts 2, 3, and 4. This Regulation is an effort to protect the nucleus of the Capital of Lithuania as a unique heritage of nature, history and arts, preserving its historic properties, values and authenticity, safeguarding and retaining the spirit, historic memory, traditions and character of the Old Town; ensuring that values for which the Old Town has been inscribed onto the World Heritage List and into the List of cultural heritage of Lithuania would be retained authentic, reinforced, properly interpreted, accessible to public, and transmitted in their fullness to the future generations. In the Old Town, the following valuable parts and elements, as established in the records, are preserved: Buildings, their complexes and ensembles as entirety of building, immovable cultural properties, objects that have cultural value, valuable parts and elements of the Old Town: general appearance of the buildings; their composing parts (roof and its parts, surfaces and their elements; load-bearing structures, elements of decoration, external equipment); elements of the urban structure: grid of the streets and squares; building pattern: size and boundaries of the plots, placement of buildings therein; the natural basis (terrain, hydro systems, plants); the said buildings, their complexes and ensembles, elements of the urban structure and the natural basis form valuable projections of the Old Town: silhouettes, panoramas and vistas. The worthless parts and elements are not protected, if they essentially change the composition of the cultural monument, its content, structure, function, and otherwise decrease its cultural value. The Old Town is protected by maintenance, management and use. The following management regimes are applied: conservation-restoration, restoration, and restorationreestablishment. Detailed management regimes and works permitted in the areas, for green plants and buildings are presented in parts 2, 3, and 4. The regimes and requirements for management and maintenance works on the buildings, their ensembles and complexes are established by individual protection regulations, typical protection regulations, and temporary regulations that are prepared according to rules established by the Cultural Heritage Department under Ministry of Culture. In the Old Town the following regimes of use are applied: Restricted use, and Universal. Detailed regimes of use, types and extents of permitted uses for the areas, green plants and buildings are presented in parts 2, 3, and 4. 7 This Regulation will be replaced by a special Management Plan of the Old Town, which will determine the protection requirements for both the Old Town and its buffer zone (the current Regulation does not define the protection requirements for the buffer zone beyond visual impact). This Special Management Plan will be approved by the Minister of Culture. 1.5. Revitalisation programme To implement the Revitalisation strategy of 1996, in 1998 the City Council and the Ministry of Culture founded Vilnius Old Town Renewal Agency (OTRA). In 2001, the institutional reorganisation of OTRA into a public not-for profit agency has left only the City as a founder. Every year, collaborating with the Urban development department of the City, OTRA prepares the Old Town Revitalisation programme, and undertakes activities related to implementation of the strategy. The annual revitalisation programme helps ensuring a continuous process of revitalisation and presents the schedule of renewal works from development of infrastructure, repair of streets, planning improvements to specific works, such as street lighting, repair of buildings‘ exterior, green plants etc. According to tasks formulated in this programme every year for the funds allocated by the Government and the municipality many repair works have been carried out on the facades, streets, and squares. Other parts of the programme were dedicated to community development, regional collaboration, collection and analysis of data, dissemination of information. The State has granted funding in the first years: 1998 and 1999 - 15 M Lt per annum, 2000 – 4 M Lt, and 2001–2003 - 2 M Lt per annum. The public investment, funded by the State and the City, indirectly attracted private investment: annually 80-125 M Lt.. Since 2005, direct public subsidy was replaced by reimbursement scheme for works carried out, managed by the Department of Cultural heritage under the Ministry of Culture. Since 2003 – 2005 OTRA prioritises community development, targeting: - to attract additional direct and indirect private investment with minimal public expenditure; - to increase environmental and heritage-oriented consciousness of the residents through education and fiscal incentives; - to coordinate interaction of the residents and the municipality with the Ministries of Environment and Culture; - to increase the confidence of citizens in the local government; - to continue revitalisation of historic buildings, streets and squares, safeguarding heritage and the urban whole; - to support traditions, cultural and social relationships through specific, targeted programmes; - to establish a dedicated database on the Old Town, support of the data on Internet and preparation of tailored report forms for various purposes. 8 1.6. Conclusion Analysing the review of legal background, presented above, it is evident that the management of the Old Town would benefit from improvement of coordination among disciplines and sectors. On the State level, the institutions included in management are just the Ministry of culture and the Department for Cultural heritage under it, while neither other institutions nor their fields of competence are included. When discussing an integrated management system for the value of Vilnius Old Town: the Outstanding Universal value needs to be better defined for creating a clear definition of what constitutes the value being protected. This is drafted in the chapter two of this document; there is a need for developing common principles, goals and objectives for preserving this value that would be simple, transparent, and understandable to all participant of this management. The administrative framework for achieving that is suggested in the chapter three of this document, along with the institutional and administrative proposals. Once the above has been achieved an starts functioning, after a while it will become possible to assess whether the possibilities and opportunities to effective management following the principles and attaining the goals in the legal framework provided by the current legislation have been exhausted, and some amendments are needed. It would also help to first apply the common principles and instruments to achieving the goals in the Old Town, before conceiving special legislation and devising particular institutional structure and fiscal means individually for the Old Town. Only being completely convinced that the common means implemented transparently, consciously and supporting common interest do not suffice should the Government consider additional and exceptional administrative means. 9 2. Draft retrospective Statement of Outstanding universal value 2.1. Draft Statement Vilnius Historic Centre, Ref: 541 Inscribed: 1994 Criteria: ii, iv Date of Statement: 2012 Brief synthesis A Neolith settlement among and on the glacial hills in the valley around the confluence of two rivers, in 13 c. Vilnius became a capital and a political, scientific and religious centre of the Grand Duchy of Lithuania (GDL): in 15 c. the largest country in Europe, stretching from the Baltic Sea in the North to the Black Sea in the South. Together with Lithuanians, other nations of GDL as well as their tongues, religions and cultures shaped the development of Vilnius: outstanding, multicultural city, merging the influences of the West and the East. In 1387 the city has been granted the Magdeburg Law. The Christianity, dominating since the middle Ages, and the growing extent of Judaism were complemented by the Byzantine, the Protestant and other forms of Christianity, and the material manifestations of the communities of all these religions and confessions. The identity of Vilnius has been always open to influences enhancing the social, economic and cultural activities of the thriving communities. These influences materialised in the works of Gothic, Renaissance and Baroque, placed furthest eastward in Europe. After Central European masters who in 15 c. created St. Anne‘s Church in elaborate red brick technique, the Italian Renaissance architects of the 16 – 17 c.c., and the masters of Baroque Matteo Castello, Constante Tencalla, Giovanni Pietro Perti and Giovanni Maria Galli, in the 18 c. there has developed a School of Vilnius Baroque, which excelled in the work of the German architect Johann Christoph Glaubitz, who worked in Catholic and Lutheran churches and Jewish synagogues, leaving an imprint in the large area of the GDL. This School was succeeded by a distinct Classicism, nurtured by a Lithuanian architect Laurynas Gucevičius in the latest Cathedral of Vilnius and the Town Hall, and in the surviving work of architects Martin Knakfuss, Vasiliy Stasov, Tadeusz Rostworowski, Waclaw Michnevicz, Mikhail Prozorov. The current form of the city retains its authentic qualities in the material attributes and continuous processes, traditions of the arts and life witnessing often stormy history of the city and the country and their political, economic and cultural evolution throughout the centuries. Vilnius as a city and a phenomenon played an important role in the development of the Lithuanian and other nations of the city and its region, thus imprinting an eternal track in the cultures of the Yiddish speaking Litvak Jews, the White Russians, Poles, Russians, Lithuanian Tatars and the Karaim. 10 Criteria for designation Criterion ii: Vilnius is an outstanding example of a medieval foundation which exercised a profound influence on architectural and cultural developments in a wide area of Eastern Europe over several centuries. Criterion iv: In the townscape and the rich diversity of buildings that it preserves, Vilnius is an exceptional illustration of a central European town which evolved organically over a period of five centuries. Integrity The radial street pattern in the Old Town remains since the Middle Ages. Its spatial structure reflects the evolution driven by changes of the styles and the political and natural calamities. The site retains the vast majority of the attributes of integrity needed to confirm the outstanding universal value: a University ensemble of the 16 c., a Town Hall with a square, the temples of all confessions, filling the street pattern without any significant gaps. Just a few places mark the damages of the occupations and wars: the Cathedral square covering the foundations of the Lower Castle, demolished after the last, 3rd partition of the Commonwealth of the Two Nations in 1795, the empty place of the Great Synagogue, demolished after the WWII, and the nearby attempted fragment of a broad avenue on the side of Vokiečių street (Deutsche gasse), and some squares or modern buildings build in the places of the demolitions of the same period. Those features gone and changed remain in the sources of history, diligent archaeological and historical research reports, the fine and applied arts, living traditions of music, theatre and hospitality. Some spaces, uses and activities have naturally changed with developing social and economic needs, yet the formulated outstanding universal value is readily recognisable. The City has retained its political role and economic and cultural importance in the country and the region, ad its current shape represents its complex history excellently. Authenticity The spatial pattern of the city in the natural frame and a vast majority of the buildings filling the pattern remain authentic in their shape, materials, and building technique. Many of the buildings retain material layers from several periods, as, with introduction of new styles, the buildings have been rebuilt, incorporating the old buildings into the new ones. Those buildings that suffered from he wars and fires, and notably after the WWII were reconstructed by technical solutions typical to that time, whilst the traditional methods of restoration were used only for the monuments and the outstanding details. On the whole, the authentic attributes remain in the pattern of plots, structure and internal spatial arrangements of the buildings, distinctive elements of internal decorations and equipment, surfaces of the external walls and various decorations of the facades, doors, windows, and roofs, pavements of the streets and squares, and details of the engineering and transport infrastructure, along with the surviving intangible heritage: arts and traditions. 11 Management and protection requirements necessary to maintain OUV The protection of the Outstanding Universal value of the Old Town is guaranteed and the specific provisions stipulated by the Laws on the basics of national security, on Protection of Immovable Cultural Heritage, on State Commission of Cultural Heritage, on Territorial Planning on Protected areas, and other legal acts. The value and its attributes are protected by the Vilnius strategic plan, Vilnius official plan, Regulation on the Protection of the Old Town, and the actions taken by the annual Old Town revitalisation programme. The Minster of Culture of the Republic of Lithuania is responsible for safeguarding the Old Town. The safeguarding of the value is based on 4 principles: (i) territorial unity of management; (ii) lateral interaction of inter-institutional multidisciplinary scope of management, involving, besides the heritage protection, other sectors: territorial planning, social, economic and other issues; (iii) vertical integration and coordination of responsibilities and decision making on the state and local governance levels; (iv) interaction of the institutions of the state, local government and civil society through an inter-institutional commission and civil society audit. The multinational community of the city that developed in history is more homogeneous today, hence the manifestations of a multicultural city must be especially treasured, safeguarded and exposed. The exceptional attention should be given to remaining authentic elements, their preservation in historic techniques, and exposition, their interpretation to be complemented by references to the forgone socioeconomic and cultural processes and other intangible heritage. 2.2. The attributes of the outstanding universal value Material shape and its changes Natural framework: terrain and green plants; General pattern of the plan and space and the surrounding areas; Network of streets and squares, size, scale and boundaries of the plots, placement of the buildings in the plots; Projections (silhouettes, panoramas and vistas) determined by the elements of the urban pattern: buildings, their complexes and ensembles, and the natural framework; The general appearance, planning and spatial composition and structure of the buildings; Distinctive elements of the internal finishing and equipment; Surfaces of external walls, doors, windows and roofs; Pavements and equipment of the streets and squares; Engineering and transport infrastructure. 12 Social, economic and cultural activities, their change and the intangible heritage Uses and their economics; The composition and activities of the community; Religions, spiritual culture and ritual traditions; Historical sources; Legends and myths; Regional and international political, economic and cultural interactions of the city; Fine and applied arts; Traditions of theatre and music; Traditional folk cultures and crafts, traditions of trade and hospitality; Tradition of safeguarding heritage. 13 3. Management of the OUV of Vilnius Historic Centre 3.1. Background and purpose for determining OUV management system The Law on Protected Areas, Article 24 part 3 stipulates, that “The protected areas which have been granted the status of a protected area of international importance and/or which have been entered in lists of protected areas of international importance shall be subject to the requirements set forth by international conventions and treaties. The Government shall also regulate peculiarities of protection of the areas entered in international lists of protected areas“. The legal system of the Republic of Lithuania already possesses all legal acts that are crucial for effective safeguarding of the protected areas and tangible cultural heritage. These laws are periodically reviewed and improved. They determine responsibilities of state and local government institutions for heritage protection. All institutions stipulated by laws are established and their activities are financed according to possibilities from the state and municipal budgets. To regulate development and protection, strategic, master and special plans are elaborated and approved according to these laws. The purpose of the OUV management system of Vilnius Historic Centre is to determine goals and modes of interaction among institutions of the state and local governments, owners and users of the properties in the site, and the civil society, managing and safeguarding the OUV of the site, for which it is inscribed onto the World Heritage List. 3.2. Structure of the OUV management system Explanation of the existing legislation includes: - laws and bylaws and decisions of the local governments listed along with their provisions for management of the site and layout of responsibilities; - institutions that take part in management of the OUV and their responsibilities; - documents of territorial planning and their provisions that regulate development and protection of the site. 3.2.1. Territorial integration of management The territorial fragmentation may create problems for functioning of the site within a larger territorial unit. Therefore, formation of special autonomous administrations must be justified by strong reasoning: - how is the site different from the remaining unit in management and vision of development, - why these differences cannot be managed and the goals attained in the same management structure and legal environment as in the rest of the territory, by just adding specific planning regulations; 14 Should it be proven that the need for autonomous management exists, then it must be stipulated how it interacts with the local government before foundation of such management so as to avoid conflict of authority. 3.2.2. Horizontal, inter-institutional and multidisciplinary interaction To optimise the horizontal interaction it is crucial to clearly define the significance of the site: - formulating valuable characteristics that determine the value, and including them into visions, principles, strategic goals and other provisions of strategic, territorial and special plans; - assessing the fields and sectors of government, society and business whose regulation, contribution and collaboration in attaining the goals is vital; - formulating such criteria of success for state and local government institutions that would force them to conform to the principles and collaborate, so that the results of these institutions are measured by their contribution to overall results. 3.2.3. Vertical coherence of management By vertical coherence the tuning of the state, regional and local government responsibilities is meant. This coherence must be implemented according to principle of subsidiarity. In regard of the heritage sites, it is desirable to place as much authority as possible with the local government. 3.2.4. Coherence between state institutions and local government and the civil society Each heritage site has a special relationship with the civil society, therefore when the significance is defined it is imperative to consult the non-governmental organisations of science and education and other civil society organisations. There must be a particular mechanism instituted for consultation, ensuring that: - The values attributed to the site are verified in a critical dialogue among the management institutions and various groups of society; - The definition of valuable characteristics must include as wide subject areas as needed and that this is understood and supported by the society, community and various groupings; - All means of management are discussed with the broad society and local community and in implementation of management there are broadest opportunities for them to take part and review. 3.3. Formation, implementation and review of the OUV management system The state authority, which is by law responsible for the heritage protection of the site, is responsible for preparation of the guidelines and it initiates their elaboration and adoption. All activities that are related to the site and can influence changes to the OUV have to participate in preparation of the guidelines. These representatives of these institutions are complemented by non-governmental institutions of science and education, interested civil society organisations and together form a Commission for supervision of the site values and coordination and integration of 15 management of the site. The Commission is supported and chaired by the state institution responsible for heritage protection of the site. The commission must meet by initiative of any participating institution but at least once in 3 months and arranging a meeting reporting on monitoring at least once a year. All dates for implementation of the guidelines must be set so that all institutions have time to cast requests for resources allocated by state and give timely proposals to state budget allocations. 3.4. Instruments for implementation of the guidelines In the guidelines are defined three, cyclically related implementation instruments: - Integrated report of actions done in last time-period and review of the nongovernmental organisation, results of monitoring of the valuable characteristics and evaluation results of the impact factors, joint list of actions to solve problems or neutralize their impact. 3.4.1. Periodical (annual) report During the annual meeting the chairing institution will present an annual integrated report reflecting on results of monitoring, ordinary means taken, and impact factors, including: - changes of the management system, - effectiveness of the ordinary measures, - changes of the valuable characteristics that have happened, are ongoing or are expected to happen, - analysis of reasons for status, - and expected risks. Should it be needed, the management system is reviewed according to this report. 3.4.2. Actions taken in the site and the joint list of actions In the wake of the annual integrated report, in one month a joint list of action for coordination and integration of the management of site must be made for the period not shorter than one year, including actions of all institutions involved in the Commission. For each of the actions, there must be a name of the head of the department or unit who coordinates the implementation of the action, the deadlines and the resources allocated by the institution. Any action may be included in the joint list only once the institution concerned has included this action into its own action plan and budget, and the documents proving this, signed by respective managers of the institutions must be attached. No action can be included that is not covered by state or municipal budgets. 16 3.4.3. Annual Integrated report of actions taken in the last period In preparation of the Annual integrated report all institutions that take part in management of the site must submit brief reports on their actions that were included in the joint list of action for the period to the chairing institution, clearly indicating what has been or not has been done, if not – why, and what resources have been used to implement action according to the format presented in the guidelines. The chairing institution assembles these reports into an integrated report which must be presented so that the course and result of each action is clearly discernible. The integrated report must be accessible for all interested parties for at least two weeks to send their comments in, thus ensuring the review of the civil society. Two weeks before the annual meeting the non-governmental organisation, appointed by the chairing institution will integrate all comments and present during the annual meeting. 3.4.4. Periodic reports to the World Heritage Committee When the OUV management system is further elaborated, the structure of WH Periodic reporting needs to be applied to the reports of the management system of Vilnius Historic Centre, so that they could be directly transferred to the Periodic reports. 17
