Mosi-oa-Tunya / Victoria Falls

The governance and management of the Mosi-oa-Tunya/Victoria Falls World Heritage Site have increasingly emphasized the involvement of Indigenous peoples and local communities in decision-making processes. Notably, the Leya people of Mukuni, who have a long-standing historical connection to the area, are recognized as key stakeholders in the site's management. Their deep-rooted cultural ties to the falls underscore the importance of integrating Indigenous perspectives into conservation strategies (Chapters, 2023).
Many of the economic benefits derived from the property accrue to local people employed in tourism-related services and activities outside the site. The States Parties of Zambia and Zimbabwe have employed the Public Private Partnership (PPP) principle to promote stakeholder participation for the effective management of the property. To attain the desired outcome, tourist infrastructures such as gift shops and restaurants within the property have been leased out to the public sector to provide tourists’ goods and services to visiting tourists (IUCN Consultation, 2020). Management has also engaged the private sector to partner in funding conservation works and support management initiatives, which also benefit their businesses. The deliberate inclusion of the private sector in the management of the property has fostered mutual trust and confidence between the private and the public in managing the property (IUCN Consultation, 2020).
To enhance community stewardship, management frameworks have adopted critical stakeholder engagement strategies. These strategies aim to involve all relevant parties, from governmental authorities of Zambia and Zimbabwe to local communities in planning and decision-making processes. Such collaborative efforts are designed to foster a sense of ownership among local populations, thereby promoting the safeguarding of the site's natural and cultural heritage (Panorama, 2023). This participatory approach not only empowers local communities but also ensures that conservation initiatives are culturally appropriate and socially equitable.

Mosi-Oa-Tunya/Victoria Falls has been protected as a National Monument by the States Parties of Zambia and Zimbabwe using respective legal instruments since the 1930s. By 1937, the Victoria Falls National Park on the Southern Rhodesian side (now Zimbabwe) was established and administered by the Forestry Commission at this time; the falls were divided into the Southern Bank (Zimbabwean side) and the Northern Bank (Zambian side) (Zulu 2020:2). On the Zimbabwean side, protection of the site is provided under Zimbabwe’s Parks and Wildlife Act, National Museums and Monuments Act, Environmental Management Act, Tourism Act and Forestry Act. In Zambia, the National Heritage Conservation Act and the Wildlife Act, the Zambia Environmental Agency Act, the Town and Country Planning Acts, the Public Health Acts, the Forests Act, and the Energy Regulation Acts are used in the management of the property. Other legal documents developed by the two States Parties are the Joint Integrated Management Plan (2016-2022), the Joint Sustainable Tourism Plan (JSTP) 2017, and the Joint Sustainable Financing and Business Plan (JSFBP) 2019 being developed (IUCN Consultation, 2020). In 2024, the States Parties have revised the JIMP with funding from UNESCO under the International Assistance Requests Program and co-financed by the two States Parties (States Parties of Zambia/Zimbabwe, 2024). The document is pending finalisation and approval. The national parks on both sides have management plans (Zimbabwe, 2024 and Zambia, in preparation).

Spanning the border between Zambia and Zimbabwe, the property is managed through a collaborative governance framework involving both nations. This transboundary approach ensures that conservation efforts are harmonized across the entire property, recognizing its ecological and cultural significance. A pivotal element of this framework is the Joint Integrated Management Plan (JIMP) for the period 2016 to 2021, which was developed to guide sustainable management practices within the site. The JIMP emphasizes coordinated actions between the two countries to address challenges such as tourism pressure, environmental conservation, and the protection of the site's Outstanding Universal Value (UNESCO, 2023). However, reports indicate that the full implementation of the plan has faced challenges due to resource limitations and confusion over zonal boundaries (see Management plan and overall management system) and the need for greater community involvement (UNESCO, 2023). In 2024, the States Parties revised the JIMP, and it is now waiting for approvals (with a deadline extended to the end of June 2025). The process was funded by the UNESCO WHC under the International Assistance Requests Program and co-financed by the two States Parties (States Parties Zambia/Zimbabwe, 2024). The Committee requested the States Parties to finalize and approve the JIMP as soon as possible and to ensure that it incorporates necessary safeguards and thresholds to mitigate against developmental pressures for the protection of the property’s OUV, and zonation of the property, including well prescribed limits of use and permissible activities (including infrastructure), in line with the objectives of protecting the OUV and with past Committee decisions (UNESCO, 2024). Central to the governance structure is the principle of critical stakeholder engagement, which involves incorporating the perspectives and participation of key stakeholders and rights holders, including local communities, governmental authorities, and institutional bodies from both Zambia and Zimbabwe. This inclusive approach aims to foster community stewardship and ensure that decision-making processes are both participatory and reflective of the diverse interests associated with the site. By engaging local communities in planning and management activities, the governance framework seeks to promote the safeguarding of the site's natural and cultural heritage (Panorama, 2023). Strengthening this collaborative approach, along with enhancing resource allocation and capacity-building programs, is essential for the long-term preservation of the property.

The integration of the Mosi-oa-Tunya/Victoria Falls World Heritage Site into local, regional, and national planning systems has been significantly enhanced through its inclusion in the Kavango–Zambezi Transfrontier Conservation Area (KAZA TFCA). Established in 2011, KAZA TFCA encompasses regions of Angola, Botswana, Namibia, Zambia, and Zimbabwe, creating one of the world's largest conservation areas. This transboundary initiative aims to promote biodiversity conservation, facilitate wildlife movement across borders, and bolster socio-economic development through sustainable tourism. The fact that the Mosi-oa-Tunya/Victoria Falls is within this expansive conservation landscape, the site benefits from coordinated management efforts that transcend national boundaries, ensuring inputs into the preservation of its Outstanding Universal Value (Kavango–Zambezi Transfrontier Conservation Area, 2023). At the national and local levels, Zambia and Zimbabwe have developed joint management plans to harmonize conservation strategies and land-use planning for the World Heritage Site (now into its third iteration). These collaborative efforts involve critical stakeholder engagement, incorporating input from governmental authorities, local communities, and other relevant actors. Such inclusive planning processes aim to foster community stewardship and ensure that development initiatives align with conservation objectives, thereby maintaining the site's ecological integrity and cultural significance (Chanda, 2016).

The States Parties originally nominated an area much larger than is currently inscribed on the World Heritage List. The area that was nominated covered all of Mosi-oa-Tunya National Park (Zambia), Zambezi National Park (Zimbabwe), and Victoria Falls National Park (Zimbabwe), totaling 65,180 ha. The 1989 IUCN Evaluation however noted that while the larger area is important for the protection of the property and its watershed, it bears little functional relationship to the Falls itself and the downstream gorges, and recommended that the limits of the property be defined by the southern half of Mosi-oa-Tunya, a small riverine section of Zambezi National Park, and all of Victoria Falls National Park. The World Heritage Committee approved the inscription of the property on the basis that the States Parties reach an agreement on final boundaries and report back to the Committee the
subsequent year (Decision CONF 004 XV.A).
Available records show that the final boundaries were not submitted and finalized as per the 1989 Committee Decision, and it was only in 2012 through the Retrospective Inventory report that the boundaries were next discussed. Subsequent submissions of the property boundary maps by the States Parties for state of conservation reporting and Joint Integrated Management Plans (JIMPs) during the period from 2012 to 2021 revealed multiple variations of the property and buffer zone boundaries used in different documents.
The 2022 joint UNESCO/IUCN Reactive Monitoring mission to the property recommended that the States Parties provide a map indicating the precise boundaries of the property and its buffer zone, agreed upon by both States Parties and aligned with the recommendations in the IUCN evaluation and past World Heritage Committee requests, to be used in all future planning, strategy, and policy documents. This should include the proposed internal zoning in high, medium, and low ecologically sensitive zones, along with their rationale and the management implications of this zoning. A clear explanation of how the buffer zone protects the property should also be provided (UNESCO and IUCN, 2022). Further to that recommendation, the Committee requested the States Parties to submit a request for a boundary modification in accordance with the Operational Guidelines to set the precise boundaries of the property and its buffer zone, aligned with past Committee Decisions and the property’s Statement of OUV and including details of the internal zonation system and its rationale to protect the property and its OUV (UNESCO, 2023). This request is in preparation and will be submitted (States Parties of Zambia/Zimbabwe, 2024).

The Victoria Falls National Park Ramsar Site and the Mosi-oa-Tunya / Victoria Falls World Heritage Site significantly overlap, both encompassing the renowned Victoria Falls and surrounding ecosystems. The Ramsar Site, designated in 2013, covers 1,750 hectares and is located in Zimbabwe's Matabeleland North Province. It features unique vegetation such as mopane forests and miombo woodlands and supports diverse wildlife, including elephants, buffalo, lions, leopards, and black rhinoceros (Ramsar, 2013). The Ramsar description currently available on the site is in need of serious attention. The map provided shows the area as being south of the Masuwe River, while it refers to the whole of the Victoria Falls NP. The written description of the values is also in need of attention (e.g., black rhinoceros and miombo woodland, area covered)
The World Heritage Site spans both banks of the Zambezi River, incorporating Zimbabwe's Victoria Falls National Park and Zambia's Mosi-oa-Tunya National Park. Maps show that the Ramsar Site falls entirely within the boundaries of the World Heritage Site, suggesting a complete overlap of the Ramsar site, but not of the WHS (according to the assessment definition of overlap). The level to which the management is effectively coordinated across the Ramsar and WH sites is unclear.

Although implementation is often slow, key Committee decisions and recommendations have generally
been addressed to some extent.

Climate change poses a significant threat to the site, with potential impacts including altered rainfall patterns, reduced water flow, and increased temperatures, which could affect the ecological integrity and aesthetic value of the falls. The property has experienced significant climate variability in recent years, notably during the severe drought of 2019. This event led to a substantial reduction in the Zambezi River's flow, dramatically diminishing the volume of water cascading over the falls and raising concerns about the broader implications of climate change on the region's hydrology (The Guardian, 2019). The management plan for the site, as outlined in the 2016-2021 Joint Integrated Management Plan (JIMP) for the Mosi-oa-Tunya / Victoria Falls World Heritage Site, included provisions to address climate change impacts. The plan emphasizes the need for adaptive management strategies, such as monitoring water levels, vegetation health, and wildlife populations, to safeguard the OUV from climate-related threats (Zambia Wildlife Authority & Zimbabwe Parks and Wildlife Management Authority, 2020). However, specific climate adaptation measures are not extensively detailed, indicating a need for more targeted actions to mitigate climate risks.

A system to measure and monitor the effects of climate change on the OUV is partially in place, with both Zambia and Zimbabwe collaborating on hydrological and ecological monitoring. For instance, the Zambezi River Authority monitors water flow and rainfall patterns, which are critical indicators of climate change impacts on the falls (Zambezi River Authority, 2021). Additionally, UNESCO collaborated with experts from James Cook University in 2022 to pilot an online climate vulnerability training course for Mosi-oa-Tunya/Victoria Falls (UNESCO World Heritage Centre, 2022). This initiative aimed to enhance the capacity of site managers to assess climate vulnerabilities and develop adaptive management strategies. The training focused on equipping conservation teams with tools to monitor climate-related impacts and implement mitigation measures such as ecosystem restoration, improved water management, and sustainable tourism practices (UNESCO World Heritage Centre, 2022). Such efforts are crucial in ensuring that the site is prepared for, and can adapt to, future climate change impacts while maintaining its ecological and cultural significance. However, there is limited evidence of innovative climate mitigation or adaptation technologies being implemented at the site. Strengthening climate communication and integrating climate innovation into management practices could further enhance the site's role in global climate action. Overall, while progress has been made, more robust and specific measures are needed to fully protect the OUV from climate change and align the site with global climate goals (UNESCO, 2023).

Spanning between Zambia and Zimbabwe, the property has for years sustained peaceful bilateral relations between both States Parties thanks to well-developed management structures. The established structures are comprised of joint ministerial, joint technical, and joint site management committees (Zulu 2023). Both nations have implemented joint integrated management plans that incorporate multiple stakeholders, including national park authorities, local law enforcement agencies, and community representatives, to monitor and enforce regulations within and around the site (CBD, 2014). The most recent Joint Integrated Management Plan (2016-2021) expired in 2021 and was updated during 2023/2024. However, the document has not yet been approved (States Parties of Zambia/Zimbabwe, 2024).
The first Joint Integrated Management Plan for the site was approved in 2007, 18 years after inscription. This laid out the zones based on ecological principles. The revision of the JIMP in 2016 made significant changes in the zonal boundaries, some of which appeared to degrade the ability to manage the site in the face of emerging pressures, especially from tourism. In addition, the written zonal descriptions were difficult to follow and did not match the maps, and alarmingly, the Zimbabwean Rain Forest ended up being downgraded to a “yellow zone” with fewer management and development restrictions than as a “red zone”. This led to concessions for lodge sites and restaurants being allocated on the Zimbabwean side, along with the emergence of a ZimParks entertainment centre less than 500 metres upstream of the waterfall. Although the JIMP has been in existence since 2007 (again, 18 years), there has been little adherence to its provisions, especially regarding the “red zone,” and the past two decades have seen the emergence of at least seven hotels/camps with over 400 beds and four restaurants in areas where development should have been restricted. The revision of the JIMP in 2024 saw the reconciliation of the zones to reflect the original intent in 2012, along with detailed descriptions and maps. Although the deadline for this document was extended for a year (to May 2025), the zonal map was adopted for inclusion in the Zambezi/Victoria National Park Management Plan of 2023 (ZPWMA, 2023). The confusion over zonal boundaries and permitted developments has allowed the emergence of infrastructure that has seriously eroded the aesthetic values of the site, on both sides of the river.
Mosi-oa-Tunya National Park (MoTNP) was established under Zambia’s National Parks and Wildlife Act of 1969. The areas of the park that fall within the World Heritage boundaries are managed by the National Heritage Conservation Commission (NHCC) in line with the provisions in the JIMP. The remaining areas of the park are managed by the Department of National Parks and Wildlife (DNPW) according to a separate National Park management plan. Both NHCC and DNPW are a part of the Ministry of Tourism and Arts. Any development or activity proposals fall under the responsibility of the Zambian Environmental Management Authority (ZEMA) under the Environmental Management Act no. 12 of 2011 (UNESCO and IUCN, 2022). The Zambezi National Park and the Victoria Falls National Park (VFNP) in Zimbabwe were established under the Parks and Wildlife Act of 1975, and are both managed by the Zimbabwe Parks and Wildlife Management Authority (ZPWMA) under the Ministry of Environment, Climate, Tourism, and Hospitality. A management plan for both parks was approved in 2024. All developments are required to have an environmental assessment from the Environmental Management Agency (EMA) in line with the Environmental Management Act Chapter 20/27 of 2002 (UNESCO and IUCN, 2022). There is some confusion as to whether the JIMP takes precedence over the individual management plans, which points to the need to develop these in tandem with the JIMP to avoid conflicting strategies or objectives.

The property benefits from a relatively strong legal framework collaboratively managed by Zambia and Zimbabwe, designed to effectively detect and address illegal activities. Both nations have implemented joint integrated management plans that incorporate multiple stakeholders, including national park authorities, local law enforcement agencies, and community representatives, to monitor and enforce regulations within and around the site (CBD, 2014). The most recent Joint Integrated Management Plan (2016-2021) expired in 2021 and has been updated but not yet approved (States Parties of Zambia/Zimbabwe, 2024). This collaborative approach enhances the capacity for regular patrols and enforcement activities, ensuring that infractions are promptly identified and addressed. The establishment of the Joint Site Management Committee (JSMC) facilitates coordinated efforts in law enforcement and resource management, contributing to the site's overall protection (CBD, 2014). However, challenges remain in ensuring adequate resources and personnel to cover the conservation area effectively

There is no information on budget allocations, but they are clearly inadequate. Nevertheless, there would appear to be considerable scope for self-financing from park entry fees and other retained revenues if a proper pricing and revenue retention scheme were developed as part of a sustainable financing strategy. The two States Parties reportedly are developing a Joint Sustainable Financing and Business Plan, with a focus on creating multiple income streams to aid the protection of property’s OUV and increase the socio- economic benefits of conservation for local communities. The plan aims to address issues of benefit sharing and participation in day-to-day conservation with the immediate communities living around the property (Zulu, 2023). However, there is no updated available on this plan. Additionally, to bolster sustainable finance, the Mosi Oa Tunya Development Company (MOTDC) was established to spearhead tourism infrastructure development in Victoria Falls. MOTDC owns a 271.5-hectare property in Victoria Falls and aims to develop it into a world-class integrated tourism resort (Mosi Oa Tunya, 2023). This initiative seeks to attract private investment and diversify tourism offerings, thereby increasing revenue streams for conservation and community development. By integrating sustainable practices into tourism development, the site aims to balance economic growth with environmental preservation, ensuring the long-term protection of its Outstanding Universal Value (Mosi Oa Tunya, 2023). However, in practice this may be difficult as the demand for income may outweigh the need to protect the site.

Serious staffing problems have been reported in the past, including high staff turnover, political appointments, and prolonged staff vacancies in the management authorities of both countries (States Parties of Zambia/Zimbabwe, 2012). In 2018, the States Parties reported that extensive staff capacity training, public awareness and education activities have been undertaken (States Parties of Zambia/Zimbabwe, 2018) but these need to be ongoing activities.

There are visitor interpretation centres on both sides of the property, but these were considered ‘very basic and poor’ by the 2006 mission (UNESCO and IUCN, 2006). The one on the Zambian side was focused on early settlement in the area, rather than the values of the World Heritage site. Subsequently, both visitor centres have been upgraded, and the one on the Zimbabwe side now showcases the Outstanding Universal Values of the property in a meaningful and engaging display (States Parties of Zambia/Zimbabwe, 2012). In 2023, the States Parties of Zambia and Zimbabwe actively celebrated the Africa World Heritage Day by cleaning up the site, by involving stakeholders and explaining to them the importance of protecting and upholding the OUV of the property with the active participation of local authorities (States Parties of Zambia/Zimbabwe, 2024). Unfortunately, information about the WHS is lacking outside the key tourism attractions (rainforest). For example, there are no maps or billboards showcasing the site and its importance in the two adjacent cities. It is likely that many local residents know very little about the world heritage status and many probably have not visited the waterfall, largely for financial constraints. More could be done to raise awareness in the local area.

Being one of the Seven Natural Wonders of the World, the property is a globally renowned tourist destination. Hundreds of thousands of tourists visit the property annually from different parts of the world. Currently, despite tourists paying a lot of money to reach the destination, some are unable to view both sides of the property because of prevailing immigration rules in the respective States Parties. Tourists are subjected to time-consuming border formalities and visa payments to access either side of the property. Tourists know that the falls are in one State Party, as opposed to being transnational; this has disadvantaged the property, the communities living around it and the tourists. This property is a single entity but divided by an ‘imaginary political line’, which should not be the case. Local and international tourists must be able to access the entire property without difficulty because this is a single attraction (Zulu, 2023). To effectively manage and conserve the natural and cultural values of the property, the 2017 Joint Sustainable Tourism Plan was developed to guide the tourism development and marketing of the destination by the States Parties but this document is not readily available. The development of this plan was guided by the UNESCO World Heritage Centre and the JIMP (2016-2021) and aims to create mutual benefits from tourism for the local communities, while promoting landscape-level ecosystem management and transnational initiatives to mitigate its negative impacts (Zulu, 2023). In 2023, the Committee reiterated its concern over the increasing pressure from tourism infrastructure within and around the property, exacerbated by the absence of strategic planning and also requested the States Parties to prioritize the review and update the Joint Integrated Management Plan (JIMP) to ensure that necessary safeguards and thresholds are incorporated to mitigate against developmental pressures for the protection of the property’s OUV (UNESCO, 2023). The JIMP has been reviewed and awaits approval.

The main uses of the property are hydro-electric power generation and tourism. The critical issue is water abstraction by the power station during the dry season when river flow rates are low and the amount required is often more than half the total. An arbitrary decision to limit water abstraction for five hours daily during the dry season, aimed at allowing water to pass over the western cataract during peak visitor hours, has been taken (States Parties of Zambia/Zimbabwe, 2012).
Regarding visitor carrying capacity, an attempt has been made to establish an upper limit (6,000 visitors/day, States Parties of Zambia/Zimbabwe, 2012), but this is based on questionable assumptions such as a one-hour duration for each visit. However, in practice there does not appear to any restrictions on entries, something that will become a serious concern as visitor numbers increase. In addition there are now viewing activities from the lip of the waterfall in both Zambia and Zimbabwe at low water, something that can only serve to detract from the aesthetic values of the site.

The States Parties have produced a concrete and time-bound Action Plan for joint activities for the 2019-2020 period, which improves monitoring and informs management activities (UNESCO, 2019). Monitoring of water flow of the Zambezi River upstream of the fall has been ongoing. The States Party of Zambia has additionally strengthened automated monitoring of the water level towards further reducing water abstraction from the property (UNESCO, 2017). The property is also an Important Bird Area which attracts keen bird enthusiasts from both States Parties and around the world. Bird surveys are conducted twice a year, in January and in the month of July. Vulture aerial Survey: On an annual basis vulture survey in Zambezi National Park and adjacent protected areas are conducted. The Survey focuses on vulture nesting site distribution and success. The survey is conducted in collaboration with stakeholders such as the Victoria Falls Wildlife Trust (Zulu, 2023). Monitoring of elephants is also an on-going activity in the two States Parties and various conflict mitigation strategies in and around the property are implemented including community sensitization on animal behavior (States Parties of Zambia/Zimbabwe, 2024). However, despite the magnitude and unique values of the property, there has not been collective research and systematic monitoring of challenges such as the cumulative effect of tourism developments and activities, deforestation, river-bank erosion, climate change/variation, human and wildlife conflict or control of invasive alien species, to name but a few. While the States Parties of Zambia and Zimbabwe have been undertaking joint monitoring exercises to collect data on property values and attributes, they also need to undertake more collaborative ventures in monitoring and research resulting in publications. Implementing this would not only improve cordial relations between the States Parties but provide vital information required to effectively manage the transnational property (Zulu, 2023).

The States Parties have produced a concrete and time-bound Action Plan for joint activities for the 2019-2020 period, which improves monitoring and informs management activities (UNESCO, 2019). Monitoring of the water flow of the Zambezi River upstream of the falls has been ongoing. The State Party of Zambia has additionally strengthened automated monitoring of the water level towards further reducing water abstraction from the property (UNESCO, 2017). The property is also an Important Bird Area which attracts keen bird enthusiasts from both States Parties and around the world. Bird surveys are conducted twice a year, in January and in the month of July. Vulture Aerial Survey: On an annual basis, vulture surveys in Zambezi National Park and adjacent protected areas are conducted. The Survey focuses on vulture nesting site distribution and success. The survey is conducted in collaboration with stakeholders such as the Victoria Falls Wildlife Trust (Zulu, 2023). Monitoring of elephants is also an ongoing activity in the two States Parties, and various conflict mitigation strategies in and around the property are implemented, including community sensitization on animal behavior (States Parties of Zambia/Zimbabwe, 2024). However, despite the magnitude and unique values of the property, there has not been collective research and systematic monitoring of challenges such as the cumulative effect of tourism developments and activities, deforestation, river-bank erosion, climate change/variation, human and wildlife conflict, or control of invasive alien species, to name but a few. While the States Parties of Zambia and Zimbabwe have been undertaking joint monitoring exercises to collect data on property values and attributes, they also need to undertake more collaborative ventures in monitoring and research, resulting in publications. Implementing this would not only improve cordial relations between the States Parties but also provide vital information required to effectively manage the transnational property (Zulu, 2023).

The effectiveness of the management system and governance in addressing threats outside Mosi-oa-Tunya / Victoria Falls is limited, as external pressures such as urban growth, upstream water abstraction, and regional development projects (e.g., the Batoka Gorge Hydro Electric Scheme) pose significant risks to the site. While the States Parties have engaged in transboundary cooperation and integrated the site into broader regional initiatives like the Kavango-Zambezi Transfrontier Conservation Area (KAZA TFCA), there is insufficient evidence of robust mechanisms to mitigate external threats. The lack of detailed monitoring and adaptive management strategies for upstream water use and regional infrastructure development highlights gaps in addressing these external pressures. Strengthened regional collaboration and more proactive measures are needed to effectively manage and mitigate threats originating outside the property.

The management system and governance of Mosi-oa-Tunya / Victoria Falls demonstrate a strong collaborative transboundary approach between Zambia and Zimbabwe, with joint management plans and stakeholder engagement, including indigenous communities and private sector involvement. However, challenges persist, such as the delayed approval of the 2024-2029 Joint Integrated Management Plan (JIMP) and insufficient resources for enforcement and monitoring. While efforts have been made to address threats like tourism pressure, illegal activities, and climate change, the lack of detailed climate adaptation measures and systematic monitoring of key issues like deforestation and invasive species indicates gaps in effectiveness. The governance framework shows potential but requires stronger implementation, resource allocation, and integration of adaptive strategies to fully mitigate threats and protect the site's Outstanding Universal Value.