IntroductionWith the establishment of UNESCQ'sWorld Heritage Convention(WHC), there was a change in themanagement of heritage globally.Through this Convention, UNESCQdesigned and implemented the firstglobal system of managing the world'scultural and natural heritage, the WorldHeritage List (Di Giovine, 2009). Sincethe adoption of the WHC in 1972, over900 sites have been listed, both naturaland cultural, as representative oftheworld's universal heritage.

The Deputy Director of the WorldHeritage Centre, Mr Kishore Rao,called for a review ofthe processof identification, nomination andinscription of World Heritage sites (Rao,2010). Rao recognises a disconnectbetween the founding principal ofinternational cooperation,'the heartofthe Convention'and its applicationtoday (Rao, 2010, p. 164). There is a lackof collaboration, at the internationallevel from Advisory Bodies, with StateParties in the initial stages of siteidentification and the creation andreview of tentative lists.

Importantly, a lack of generalcooperation from the internationalthrough to the local level was notedin The Heritage-scape - UNESCO,

World Heritage and Tourism. It is the

local level cooperation that will bethe primary focus for this paper,as the local communities' role inheritage management and tourismdevelopment in heritage areas, haschanged in the last few decades (Aas,Ladkin & Fletcher, 2005; Millar, 2006).

Protecting heritageThe establishment and managementof protected areas is the focus formuch contemporary research (Jenkins& Wearing, 2003; Puhakkaa, Sarkkib,Cottrellc & Siikamaki, 2009; Strickland-Munro, Allison & Moore, 2009), as thebenefits reach local and internationalcommunities. Specifically, the spotlighthas been on local communities andresidents, and their perceptionsof, and involvement in, protected

area management and tourismdevelopment (Jimura, 2010; Li, Wu &Cai, 2008; Nicholas,Thapa & Ko, 2009;Simmons, 1994; Simpson, 2008; Ying &Zhou, 2007).

The involvement of communityin the World Heritage program hasrecently been acknowledged anddocumented. In 2007, the'PacificAppeal,'to the WHC saw communityadded to the strategic directions' forWorld Heritage in the Pacific region.This shift in focus from the internationalorganisation has aided the justificationof local involvement in theestablishment of policy formulation.

The Pacific region has specificallybeen identified as underrepresentedon the World Heritage List (UNESCQ,201 Oe). In 2009, the WHC adopted aregionally focused program designedto rectify this underrepresentation andincrease the Pacific's uptake of WorldHeritage: The World Heritage Pacific2009 Programme. In 2004, a workshopwas held inTongariro National Park,New Zealand, establishing the Five YearAction Plan for the Implementationof the World Heritage 2009 PacificProgramme (UNESCQ, 2004). Thiswas designed to assist Pacific IslandMember States with the challengesthey face regarding the uptake oftheWorld Heritage Convention. Figure 1is a timeline of World Heritage in thePacific, demonstrating the importantchanges in the region.

Papua New Guinea (PNG) is a SouthPacific island nation and the home tothe Kokoda Track and Qwen StanleyRanges, currently a site on the TentativeList for World Heritage consideration(UNESCQ, 201 Ob). The Kokoda Trackruns through the Qwen StanleyRanges and was the scene of a toughand bloody battle between Japanand PNG, Australia and New Zealandin World War II (Wearing, Grabowski,Chatterton & Ponting, 2009). This sitealso represents an important tourismproduct for the people of PNG and asource of development for the 14 tribesthat reside on the 96 km track (Wearinget al 2009).

The Strategic Objectives, or'Five C's'as they are called include credibility, conservation, capacity-building, communication and community were included in the Operational Guidelines for theimplementation of the World IHeritage Convention in 2008;http;/Mhc.unesco.org/en/guidelines

Australasian Parks and Leisure - Summer20W

31Local communities and landowners

of the Kokoda Track and Owen StanleyRanges are central to all currentand future development programs.The concept of World Heritage isa component of development thecommunities need to understand andaccept, if the process is going to begin.Currently, the level of understanding inthe communities is low, (according tothe spokesperson for the landowners)despite the message being given tothe landowners.

The local people were informed in theurban areas, especially. Port Moresbycity, ofthe possibility of enlistingthe Kokoda Track and the OwenStanley Ranges area under the WorldHeritage listing. This information hasbeen communicated to the peoplealong the Kokoda Track. According tomy assessment, all the people withincommunities along the KokodaTrack do not understand what WorldHeritage Listing means and do notknow what the benefits are of makingthe Kokoda Track a World Heritagelisting area. (Community Member,2010).

Other stakeholders have confirmedthis lack of understanding on the

communities'behalf There is confusionin the region about PNG tentativelylisting the Kokoda Track and OwenStanley Ranges; particular groupsand communities actually believe thearea is already a World Heritage site.This confusion is common without acomprehensive understanding oftheprocedures of the WHC (Di Giovine,2009). The lack of understanding spanslocals, to government representativesand other key stakeholders, who donot fully understand the scope of theconcept.

Numerous interviewees identifiedWorld Heritage as a low priorityfor local communities, with basicservices such as food supply, healthand education at the forefront. Arepresentative from the Kokoda TrackAuthority stated that;

If you live in a village, what yourconcerns are is health, education,just basic services. So, a concept ofWorld Heritage, just in your Maslowhierarchy of needs is just so farbeyond what they are interested in.(Kokoda Track Authority, 2010).

The same person stated that it is hardto see how World Heritage could make

a big difference in the lives ofthevillagers. This is a valid concern andaddressing this issue will be a primaryfocus for the government if they dowish to pursue a protection plan and afuture nomination ofthe region.

Some ofthe interviewees for thisstudy mentioned that some ofthebenefits of World Heritage listing wereassociated with tourism growth andinternational marketing. Referencewas made to broadening the scope ofvisitors and diversifying tourist markets.Additionally, some intervieweesjuxtaposed increased tourism fromWorld Heritage listing with incomegeneration for the local communities.While both these options are possiblewith site designation, there is stilllimited understanding ofthe breadthof benefits and effects associated witha listing. Education and realisation ofthe full range of benefits will need tobe a focus in the development of amanagement plan for the region.

Responses from two private sectorrepresentatives varied widely in relationto World Heritage understanding.At one extreme, there was a lack ofunderstanding of the WHC and whatthe real benefits of a designated World

Figure 1 Pacific World Heritage Timeiine2002 - World HeritageCommittee adopts ttie Four C's(Credibility. Conservation.Capacity-building andCommunication as StrategicObjectives for the WorldHeritage Convention at its 26'"session in Budapest (UNESCO.2004)

2008 . Pacific Islands WorldHeritage Worl<shop in Caimsregarding capacity-building forhentage site management(UNESCO. 201 Od)

2004 - Action Plan for theImplementation of the WorldHeritage Pacific 2009 Programmeproduced at Pacific Workshop inTongariro National Park. NewZealand (UNESCO. 2004)

2009 - Pacific Islands WoHdHeritage Workshop in Maupiti.French Polynesia (UNESCO.2010c)

2002

2006 - Kokoda Track andOwen Stanley Range isinscribed on PNG's TentativeList (Department of Water,2006)

2008 - UNESCOproduces first CountryProgramming Documenton PNG (States 2009)

2004

2003 - World Heritage Conventionlauncties Pacific 2009 ProgrammeWith focus on The Four C s(UNESCO. 201 Oj)

2006

2010 Phoenix IslandsProtected Area. Kiribatiinscnbed on WorldHeritage List (UNESCO,20t0i)

2005 - World Hentage PacificRegional Workshops in Vanuatuproduced Thematic Framework forWorld Cultural Heritage in thePadfic (UNESCO. 2010f)

2007 - The Appeal to the WorldHeritage Committee from PacificIsland State Parties This 'PacificAppeal' included initiated theinclusion of a fifth StrategicObjective. Community to beadded to the Four C's(UNESCO. 2007)

2008 2010

2010 .onwardsImplementation of PacificWorld Heritage Action Plan2010-2016 (UNESCO. 2010e)

2008 - Chief Roi Mata sDomain. Vanuatu inscribed onWorld Hentage List (UNESCO,2010g)

2008 - Kuk Early AgriculturalSite, PNG inscribed on WorldHentage List (UNESCO,2010h)

Australasian Parks and Leisure - Summer 2010

Heritage area would be to the region.Conversely, the other intervieweeappeared to have an appreciationof World Heritage, yet articulatedthat designation of any area in PNGis not something that will happenanytime in the near future. This secondinterviewee believed that the'bigbrother'relationship between Australiaand PNG is the barrier to progress inrelation to heritage and a potentiallisting.

The Australian governmentdemonstrates a clear understandingof the application of World Heritageand has successfully inscribed 18 siteson the World Heritage List (UNESCO,2010a). The government's role in theWHC is to demonstrate leadershipin the Pacific and one of their keygoals is to assist the PNG Governmentin their uptake of the Convention.Eollowing the guidelines of thebilateral agreement between the twocountries, Australia's knowledge of theWHC has been requested by PNG andit is their obligation to guide and assistthem in their journey to World Heritagenomination.

A statement from a member ofthe Australian Government taskforceclearly expressed that the process ofWorld Heritage listing is a long one,where a nomination is an accolade fora job well done.

So that it's not looked at injusta, 'let'sjust nominate this place for WorldHeritage listing' it's looked at fromthe ground up and that you know,your longer term goal is...So in a sensethe Worid Heritage Convention...and an understanding of that in anysophisticated way is a journey, aiongwith most other Melanesian countriesanyway stiil need to go, and we're sortof very weil aware of the dimensionsof that journey that they need to takeand we're committed to assistingthem. (Department of Environment,Water, Heritage and the Arts, 2010)

The following two statements clearlyconfirm what lies at the centre of thisresearch: PNG is a unique case. Dueto customary land ownership and thecurrent levels of development, there isno textbook definition of sustainabledevelopment to fit this region. Expert

assistance in relation to developinga customised regional strategy planfor designating World Heritage sitesin PNG is needed. This plan canpotentially be adapted and appliedto other Pacific island nations to assistthem in their uptake of the WHC andthe process of World Heritage sitedesignation.

PNG is very aware of the need todevelop and grow World Heritage ina way in which local landowners whoown 97% of the land in PNG are goingto be comfortable or at least, cometo terms with the concept of worldheritage, what it means, the factthat it doesn't mean losing their landnghrs. (DEWHA2010)We've got to come up with tangiblebenefits. This World Heritage listingis a concept that suits developedcountries really well. (Kokoda TrackAuthority, 2010)

Planning for World HeritageCapacity within PNG in terms ofprogressing towards a nomination isprobably going to take a number ofyears (DEWHA 2010). Nonetheless,planning stages are visible and clearlythe current focus is environmentalprotection, landowner involvementand participation, and the role tourismwill play in the potential World Heritagearea. These three areas will be centralin developing an overall managementstrategy for the Kokoda Track andOwen Stanley Range region.

However, a nomination for WorldHeritage status for the Kokoda Trackand Owen Stanley Range is some timeaway. The issues and obstacles relevantto this region are vastly different fromthose identified in World Heritageliterature as PNG sits within thepreparatory phase of World Heritagedesignation. This exploratory researchinto pre-World Heritage designationdemonstrates the complexities ofprotected area management andtourism development in a region thatstill practises a system of customarylandownership. Despite this, efforts arebeing made to prepare for a potentiallisting and certain stakeholders aremore focused on this and capacity-building for long-term benefits andsustainability.

PNG realiy hasn't begun to do anyform of assessment in the preiiminarysense of the biodiversity values ofthe region and we're sort of assistingin building capacity within theDepartment of Environment andConservation, which does chairthe National and World HeritageCommittee within PNG as weli as thenationai taskforce of the sustainabledevelopment of the region. Our JointUnderstanding does refer to assistingPNG with an impiementation ofa feasibiiity study of the region forpossibie World Heritage values, whichit wouid need to iook at the outcomesofthat study before it decides whetheror not to progress a nomination.(DEWHA 2010)

The feasibility study being undertakenhas an environmental focus. Theconservation and protection of theKokoda Track and Owen StanleyRanges were key themes establishedby both governments in the study.Thespokesperson for The Department ofEnvironment and Conservation (DEC)in PNG, a World Heritage and ProtectedArea Specialist, highlighted some ofthe future steps required to protect thisregion:

if you're talking about steps there isgoing to be lots of many small stepsbecause firstly before any nomination,the area must have a protectionregime in piace and a managementplan. Before there is any protectionthere needs to be consultationbetween each and every group ofcustomary iand owners and that willbe a slow, siow process. Now the waythat it would probably take piace isthe Department of Environment andConservation would consult withcustomary iandowners to see if theyare prepared to commit to protectingtheir land in a formal way, probablyunder the Conservation Areas Act.That consultation of course, and anyagreement must include arrangementsregarding any assistance, or financiaior iiveiihood aspects to benefit thelandowners. {DEC 20]0)

Sustainable forms of tourism are goingto play a key role in the provision ofbenefits to local landowners however,for investment to occur certainty is animportant consideration:

Australasian Parks and Leisure - Summer2010

It's very difficult to provide certaintyand it's very difficult to get investmentbecause... it's variable. Investmentrequires certainty Sustainabletourism requires certainty. Ourchallenge is to provide that certaintyand that's what we are strugglingwith. (Kokoda Track Authority 2010)

Pederson (2002, p, 33) notes thatthe'interaction between tourismdevelopment and a community hasbeen shown to be difficult to predictwith few consistent relationships orpatterns'(Pedersen, 2002, p, 33), Thishighlights the degree of work requiredif sustainable tourism is going to existand aid the process of World Heritagedesignation and managementUnderstanding these complexities andfocusing on them has clearly beena goal of both federal governmentagencies and the local agency in theregion.

The delicate balance betweentourism growth and sustainablemanagement is fundamental in apotential World Heritage area. Itis important to recognise withoutoverestimating tourism potential,and avoid reliance on unsustainableeconomic growth. In this region, thisis a valid concern considering thedelicate natural environment andthe type of tourism developing inthe Kokoda Track and Owen StanleyRanges.

As a means of supporting the WorldHeritage.. .protected area, (tourism)is significant but not major at least inthe case ofthe Owen Stanley Ranges.The Owen Stanley Ranges are a veryrugged mountainous landscapeaccess is fairly... well very poor sothat limits the range of tourismopportunities within the area.(DEC 2010)

There needs to be carefulcommunication of this limitation andappropriate tourism growth strategiesto be designed accordingly.

What we're doing here in Papua NewGuinea, as much as through necessityas anything else, it's got to be builtfrom the bottom up so that the laststep in the whole process is a listing.And that's way off in the future inmost cases (DEC 20]0).

The implementation of projects anddevelopment programs, focused onincreasing livelihoods are actuallybuilding capacity and competencyworking towards the goal of a WorldHeritage area.

As in most cases, there is nostandardised framework to follow.The case of World Heritage in PNG iscomplex and unique, with a numberof stakeholders, different developmentprograms and two governmentsinvolved. These factors, juxtaposedwith cultural traditions and customarylandownership legislation, make thiscase multifaceted. At this point in time,little research has been undertakenin the area of pre-World Heritagedesignation, leaving countries withlittle or no representation on the WorldHeritage List without assistance ormuch guidance.

In this case study, planning forWorld Heritage in PNG can be greatlyassisted by Australia's past experienceand knowledge ofthe Convention,Currently there is little assistance fromthe WHC and its Advisory Bodies tocountries in the preparatory phasesleading towards World Heritagenomination. This was identified throughfindings in this study and on a globalscale by the Deputy Director of theWorld Heritage Centre suggesting'a new paradigm to overcome theassessed limitations, principally byenhancing international cooperationto marshal and provide the besttechnical knowledge upstream of andthroughout the process of identifying,nominating and including propertieson the World Heritage List'(Rao,2010, p. 161 ), The Pacific region lacksrepresentation on the World HeritageList and efforts were made with thedevelopment of the 1994 WHC GlobalStrategy to rectify this. Whilst this hasaided more developed countries andthose who have already ratified theConvention to list additional sites, littleprogress has been made in the smaller,less developed island nations. Theintroduction ofthe Pacific Programmeand more importantly the workshops of2008 and 2009 (shown in figure 1 ) areparticularly encouraging for countrieslike PNG, and the future developmentof World Heritage areas in this region.

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