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Recommendation 1942 (2010) Final version
A balanced approach to the rescuing of archaeological finds from development projects
1. The archaeological heritage throughout
Europe is under increasing pressure from development projects. This
presents considerable challenges for heritage management, but can
also provide important opportunities to improve our understanding
of the past.
2. Recent examples of large-scale operations where development
has come up against the need to preserve cultural heritage are mining
projects in Roşia Montană (Romania), dam construction projects in Allianoi
(Turkey), the works on the M3 motorway adjacent to the historic
Hill of Tara (Ireland) and the installations for the Olympic Games
in sites such as Marathon and Markopoulo (Greece). There are also
many industrial projects on agricultural land throughout Europe.
3. The difficulty of assessing in advance the importance of the
archaeological heritage in a particular situation and of modifying
development plans in consequence is both an economic and a cultural
problem. It can also be a political question. A balance between
cultural value and economic gain must be sought and viable methods
of funding archaeological projects found. Where preservation in situ is not possible or appropriate,
alternative means are available to offset this loss of archaeological
remains and to contribute to our knowledge of the past. These include
scientific excavation, recording, analysis, interpretation and publication.
Sometimes, reconstruction of recovered remains is possible on another
site.
4. Local interests may be more vulnerable to pressure and may
need to be balanced and protected in a wider perspective. This is
where the national authorities and the international community,
including the non-governmental organisations active in this area,
have a role to play.
5. In contrast to these threats to the existence of archaeological
heritage, the public at large is becoming increasingly aware of
the need to preserve local, national and global heritage. In parallel
with this there are rising concerns over the preservation of the
environment and the need to “save our planet” for future generations.
The ideas that economic development should be responsible and non-intrusive
and that progress cannot be achieved without accountability are
becoming widespread. It is important for international actors to build
on this favourable social climate and encourage interest and investment
in archaeology, and to emphasise the inescapable fact that, like
the environment, the archaeological heritage is a finite and non-renewable
resource.
6. The Council of Europe has always recognised the value of the
cultural heritage of all member states: Article 1 of the 1954 European
Cultural Convention (ETS No. 18) states that: “Each Contracting
Party shall take appropriate measures to safeguard and to encourage
the development of its national contribution to the common cultural
heritage of Europe.”
7. The 1992 European Convention on the Protection of the Archaeological
Heritage (revised) (Valletta Convention, ETS No. 143) is the European
reference in the field: it makes the conservation and enhancement of
archaeological heritage one of the goals of urban and regional planning
policies. It is concerned in particular with arrangements for co-operation
among archaeologists and town and regional planners to ensure optimum conservation
of archaeological heritage.
8. The 1985 Convention for the Protection of the Architectural
Heritage of Europe (Granada Convention, ETS No. 121) establishes
the principles of European co-ordination of conservation policies
and outlines the need for an integrated approach in reconciling
the protection of architectural heritage with the needs of contemporary
cultural, social and economic activities.
9. The 2005 Framework Convention on the Value of Cultural Heritage
for Society (Faro Convention, CETS No. 199) is based on the idea
that knowledge and use of heritage form part of the citizen’s right
to participate in cultural life as defined in the Universal Declaration
of Human Rights.
10. The Council of Europe’s activities in the area of cultural
heritage are guided by several of its general policy orientations,
as defined, in particular, at the 3rd Summit of Heads of State and
Government of the Council of Europe (Warsaw, 2005) and by the Faro
Convention. Emphasis is consequently placed on the opportunities
provided by heritage projects for intercultural dialogue and promoting
the recognition of the value of cultural heritage for society. The
links between cultural heritage and natural heritage have been more
closely established and regional co-operation is encouraged.
11. The Parliamentary Assembly has made an important contribution
to the Council of Europe’s work in the area. In 1978, for example,
its Recommendation 848
(1978) on the underwater cultural heritage proposed a legally
binding instrument on the protection of underwater cultural heritage;
although this was not fully approved by the Committee of Ministers,
elements were nevertheless included in the Valletta Convention.
12. More recently, the Assembly has adopted several important
texts, including Resolution
1285 (2002) on tapping Europe’s tourism potential, Recommendation 1634 (2003) and Resolution 1355 (2003) on
tax incentives for cultural heritage conservation, Recommendation 1730 (2005) on
the private management of cultural property, and Recommendation 1851 and Resolution 1638 (2008) on
crafts and cultural heritage conservation skills.
13. In the light of the above, the Assembly recommends that the
Committee of Ministers encourage member states to:
13.1. sign and ratify, if they have
not already done so, the Valetta Convention, the Faro Convention
and the Granada Convention;
13.2. integrate the provisions of these conventions into their
legislation, in particular the Valetta Convention, which contains
a detailed description of all the necessary steps for successful
heritage preservation;
13.3. exercise extreme vigilance over development projects,
as set out in the Valletta Convention, and involve private developers
in the financing of all stages of research and preservation;
13.4. share practices and experience of their procedures regarding
preventive archaeology;
13.5. form networks not only with a view to sharing knowledge
and experience, but also in order to promote exchanges between multidisciplinary
actors in the conservation of cultural heritage;
13.6. provide sufficient opportunities for training, including
training for archaeologists and also for the teaching of traditional
crafts in order for the preservation, restoration and reconstitution
of cultural heritage to be conducted sustainably;
13.7. take practical measures to raise public awareness of the
value of archaeological heritage, by publishing documents, using
modern technologies to present findings (virtual visits on the Internet,
etc.) and by organising, wherever possible, public access to sites
of particular interest.
14. The Assembly also calls on the Committee of Ministers to further
examine the issue of rescue and preventive archaeology on the basis
of case studies and with the involvement of archaeologists, art
historians and other relevant specialists, developers, local and
national government authorities and non-governmental organisations.
15. Finally, the Assembly recommends that the Committee of Ministers:
15.1. encourage an integrated approach
to cultural heritage in its activities, taking into account the interaction
between cultural and natural heritage (including landscape), as
well as environmental questions;
15.2. consider how the follow-up to the Valletta Convention
could be enhanced, in particular with a view to fostering preventive
archaeology in those member states where the destruction of heritage
continues unhindered and thus contributing to the preservation of
Europe’s heritage for future generations;
15.3. ensure that appropriate means are devoted to the follow-up
activities of the Valletta Convention, in particular the unique
European Heritage Network (HEREIN) database, which enables joint
activities to be organised and good practices to be shared;
15.4. encourage further co-operation with the European Union
and UNESCO in the field of archaeological research and specific
archaeological projects in member states;
15.5. with respect to the European Union in particular, encourage
the pursuit of joint initiatives designed to enhance the protection
of archaeological heritage and facilitate work carried out in the
field.