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UNESCO have released the draft papers and reports to be considered by the World Heritage Committee at its forthcoming 48th session, to be held at Busan, Republic of Korea over 19th-29th July 2026. The documents are available to download from the UNESCO website here.
The World Heritage Centre's overview and the Committee's Draft Decision text relating to the Mosi-oa-Tunya/Victoria Falls World Heritage site is published within document WHC/26/48.COM/7B.Add (download here), and presented below in full for ease of reference.
The Committee is due to
consider its response to the latest State of
Under 'Current Conservation Issues' the text highlights lack of clarification of the status of mitigation measures, originally requested in 2024, relating to the Mosi-oa-Tunya Resort development in Zambia, constructed in 2021/2 "without fully meeting all the approval conditions set out in the Zambian Environmental Management Authority (ZEMA) Decision Letter."
"While it is reported that the completed
construction of the Mosi-oa-Tunya Livingstone Resort Hotel does not adversely
affect the OUV of the property, the 2022 Reactive Monitoring mission identified
numerous shortfalls and non-compliance with the World Heritage status of the
property, including differing interpretations of zoning terms. Given that the
project has already been completed, and in light of the concerns raised by the
mission and in previous Committee Decisions, the information provided by the
State Party does not demonstrate whether the mitigation measures previously
reported are being implemented to adequately address negative impacts on the
property’s OUV. The development of a comprehensive Environmental and Social
Management Plan (ESMP), as recommended in the 2022 reactive monitoring mission,
and already mentioned in the report submitted by the States Parties in February
2024, is even more urgent to ensure that the mitigation and monitoring
initiatives put in place also consider the visual integrity and cumulative
effects of the project. In addition, the reported review of the 2007 Zonation
Scheme should be expedited to clarify the inconsistencies and refine the
associated permissible-use thresholds."
The text also notes no update has yet to be given in relation to the launch of tours to CataractIsland in 2022 and development of the Baines Restaurant over 2022/3. Again this lack of response follows a specific request for information from the World Heritage Centre in 2023.
"Finally, no update was provided regarding the
third-party concerns related to permits for two commercial tourism developments
in highly sensitive zones of the property, notably
In its Draft Decision text the World Heritage Committee:
"4. Expresses serious concern that cumulative impacts from large-scale infrastructure and ever-increasing tourism development within the property, its buffer zone, and wider setting continue to pose a significant threat to the Outstanding Universal Value (OUV) of the property, a situation exacerbated, among other things, by the fact that several development projects, which the States Parties have indicated to be at the scoping stage, are currently underway, and invites the States Parties to provide further details on the reported development projects that are under consideration as soon as more information is available: ...
"6. Notes with regret that no update was provided regarding the third-party concerns related to permits for two commercial tourism developments in highly sensitive zones on the Zimbabwean component of the property, noting that information available online indicates that these developments have already commenced operation, expresses its deep concern about the potentially irreversible impacts of these projects on the integrity and the visual attributes of the property and urgently requests the States Parties to report on the monitoring and mitigation measures in place to ensure that the infrastructures do not negatively affect the OUV of the property;
"7. Also notes with regret that the construction of the Mosi-oa-Tunya Livingstone Resort Hotel proceeded without fully meeting approval conditions at the national level and following the Committee’s request to halt further activities until the Environmental and Social Impact Assessment (ESIA) had been submitted and reviewed, and reiterates its requests to the States Parties to implement the 2022 Reactive monitoring mission recommendation to develop a comprehensive Environmental and Social Management plan, which the States Parties indicated in their 2024 report was already being developed, ensuring that the mitigation measures put in place take into account the visual integrity and cumulative effects of the project and address its negative impacts on the property’s OUV;
"8. Also reiterates its request to the States Parties to ensure that any project located within the property, its buffer zone, and wider setting with potential impacts on the OUV is subject to assessment through ESIA or HIA in conformity with the Guidance and Toolkit for Impact Assessments in a World Heritage Context and submitted for review prior to any decision; "
Regarding the draft Joint Management Plan for the site, the text raises several specific concerns to be addressed in a revised draft, to be submitted by 1st December 2027, presumably for consideration by the Committee in 2028.
"13. Finally requests the States Parties to submit to the World Heritage Centre, by 1 February 2027, an interim report including a copy of the updated JIMP, taking into consideration the comments outlined above, and by 1 December 2027, an updated report on the state of conservation of the property and the implementation of the above, for examination by the World Heritage Committee at its 50th session."
The text also indicates the World Heritage Centre sent the State Parties a letter in September 2024 requested information relating to tourism developments within the Site's no new development zone - sadly not specified but believed to relate to the lease agreements, already signed with third parties, for the development of the proposed riverside 'tree lodges' and Kandahar Camp developments on the southern, Zimbabwean, side of the Falls. Not surprisingly, eighteen months later, the World Heritage Centre has not had any response to this request.
"In a letter dated 25 September 2024, the World Heritage Centre transmitted to the State Party of Zimbabwe, for comments, third-party information reporting the issuance of several commercial sites for tourism developments in contradiction to the existing JIMP within the property. No response has been received from the State Party at the time of writing this report."
The State Parties on both sides of the river will no doubt yet again be patting each other on the back for successfully delaying any significant review of tourism developments at the Site by the Committee until 2028.
Full text relating to Mosi-oa-Tunya/Victoria Falls World Heritage Site:
48 COM, WHC/26/48.COM/7B.Add
Convention Concerning The Protection Of The World Cultural And Natural Heritage
Intergovernmental Committee For The Protection Of The World Cultural And Natural Heritage
Forty-eighth session, Busan,
Item 7B of the Provisional Agenda:
State of conservation of properties inscribed on the of World Heritage List
93. Mosi-oa-Tunya /
Victoria Falls (
Year of inscription on the World Heritage List: 1989
Criteria: (vii)(viii)
Year(s) of inscription on the List of World Heritage in Danger: N/A
Previous Committee
Decisions:
See page https://whc.unesco.org/en/list/509/documents/
International Assistance:
Requests approved: 6 (from 2001-2022) Total amount approved: USD 118,585 For details, see page https://whc.unesco.org/en/list/509/assistance/
UNESCO Extra-budgetary
Funds:
Total amount granted: USD
50,000 in 2015 through the UNESCO World Heritage Sustainable Tourism programme
(
Previous Monitoring Missions:
November 2006: joint World Heritage Centre / IUCN Reactive Monitoring mission; February 2022: joint UNESCO/IUCN Reactive Monitoring mission
Factors Affecting the Property Identified in Previous Reports
Air pollution
Drought
Housing (uncontrolled
urban development driven by population increase)
Impacts of tourism /
visitor / recreation
Invasive/alien species
Major visitor
accommodation and associated infrastructure
Management systems/
management plan
Solid waste
Surface water pollution
Water extraction (related
to existing hydropower production)
Water infrastructure
(Batoka Gorge Hydro Electric Scheme- downstream hydropower dam with reservoir
encroaching on the property)
Illustrative material
See page
https://whc.unesco.org/en/list/509/
Current Conservation Issues
1. On 1 December 2025, the
States Parties of Zambia and
a) The States Parties assured of the continued result-oriented and robust efforts in conducting empirical-based, data-driven, and people-centered research, as well as monitoring and management activities within and around the property;
b) A Strategic Environmental Assessment (SEA) on cumulative development and environmental pressure on the property was undertaken in consultation with relevant stakeholders;
c) The States Parties reiterate their dedication to the full implementation of the 2022 Reactive Monitoring mission recommendations, and regular updates on progress will be provided;
d) Significant progress has been made in addressing the increasing pressure from tourism infrastructure, including the finalization and submission of the draft Joint Integrated Management Plan (JIMP) along with this report, while awaiting its validation by the Joint Technical Committee (JTC), before resubmission to the World Heritage Centre, as well as on matters such as the delineation of the precise boundaries of the property and its buffer zone, and the harmonization of national and transboundary plans and policy documents;
e) The Environmental and Social Impact Assessment (ESIA) for the proposed Batoka Gorge Hydro Electric Scheme (BGHES) is being revised in conformity with the Guidance and Toolkit for Impact Assessments in a World Heritage Context and will be submitted to the World Heritage Centre prior to final decision;
f) The construction of the Mosi-oa-Tunya Livingstone Resort Hotel proceeded without fully meeting all the approval conditions set out in the Zambian Environmental Management Authority (ZEMA) Decision Letter. A review of inconsistencies in the 2007 Zonation Scheme and its associated permissible-use thresholds is ongoing;
g) A boundary modification is reported to have been formally submitted to the World Heritage Centre in conformity with the Operational Guidelines;
h) Joint site protection measures focusing on invasive species control, fire management, visitor management, community engagement, environmental education, enhanced conservation, and law enforcement are in place and ongoing;
i) A number of development proposals within the property and its buffer zone have been submitted for consideration by authorities. These are mostly at the scoping stage, and EIA documents have not yet been produced. The States Parties commit to ensuring that all project developments within the property, its buffer zone, and wider setting will be subject to a comprehensive ESIA, in line with the afore-mentioned guidance, prior to any decision;
2. In a letter dated 25 September 2024, the World Heritage Centre transmitted to the State Party of Zimbabwe, for comments, third-party information reporting the issuance of several commercial sites for tourism developments in contradiction to the existing JIMP within the property. No response has been received from the State Party at the time of writing this report.
Analysis and Conclusions of the World Heritage Centre and IUCN
3. The continued cooperation between the States Parties, supported by their partners, to improve the property’s state of conservation through joint protection measures focusing on invasive species control, fire management, visitor management, community engagement, environmental education, enhanced conservation, and law enforcement is appreciated.
4. There are still concerns about the cumulative impact of large-scale infrastructure and ever-increasing tourism developments within the property, its buffer zone, and wider setting, given that several development projects, which the States Parties have indicated to be at the scoping stage, are currently underway, according to various online media outlets. Despite repeated Committee decisions and recommendations from the 2022 Reactive Monitoring mission, the delayed completion and submission of the requested SEA remains highly concerning. Without the SEA, it is difficult to adequately assess, manage, or mitigate the cumulative impacts of multiple projects on the Outstanding Universal Value (OUV) of the property, particularly in this transboundary context. It is therefore important to expedite the finalization and submission of the SEA, whilst ensuring that the newly identified projects are also considered in this process or through a Heritage Impact Assessment (HIA). The States Parties are also invited to provide further details on the reported projects that are under consideration by the authorities as soon as more information becomes available.
5. The proposed BGHES continues to pose a major potential threat to the OUV, particularly with respect to the property’s geomorphological processes, landscape integrity, visual attributes, and hydrological dynamics. Recalling that news reports in 2024 indicated plans to retender the project with new potential developers expected in 2025, no substantive updates on this project are provided in this regard. Noting the ongoing revision of the ESIA in conformity with the Guidance and Toolkit for Impact Assessments in a World Heritage Context, it should be recalled that this ESIA must explicitly assess alternative scenarios to avoid negative impacts on the OUV, as recommended by the 2022 Reactive Monitoring mission, and be submitted to the World Heritage Centre prior to taking any decision that is difficult to reverse.
6. While it is reported
that the completed construction of the Mosi-oa-Tunya Livingstone Resort Hotel
does not adversely affect the OUV of the property, the 2022 Reactive Monitoring
mission identified numerous shortfalls and non-compliance with the World
Heritage status of the property, including differing interpretations of zoning
terms. Given that the project has already been completed, and in light of the
concerns raised by the mission and in previous Committee Decisions, the
information provided by the State Party does not demonstrate whether the
mitigation measures previously reported are being implemented to adequately
address negative impacts on the property’s OUV. The development of a
comprehensive Environmental and Social Management Plan (ESMP), as recommended
in the 2022 reactive monitoring mission, and already mentioned in the report
submitted by the States Parties in February 2024, is even more urgent to ensure
that the mitigation and monitoring initiatives put in place also consider the
visual integrity and cumulative effects of the project. In addition, the
reported review of the 2007 Zonation Scheme should be expedited to clarify the inconsistencies
and refine the associated permissible-use thresholds. Finally, no update was
provided regarding the third-party concerns related to permits for two
commercial tourism developments in highly sensitive zones of the property,
notably
7. The transmission of the
draft JIMP 2025-2030 is appreciated, as it represents an effort towards a
coherent strategic framework grounded in a clear articulation of the OUV and
key conservation challenges, particularly development and tourism pressures.
The reinstatement of a three-tier zoning system aligned with the 2007 framework
is conceptually sound for protecting priority areas, but it needs to be
detailed sufficiently in the draft JIMP to function as an effective regulatory
tool.
The draft document lacks a finer-scale map and detailed information on the zoning system. It must also include the necessary safeguards and thresholds to mitigate developmental pressures as repeatedly requested by the Committee. In addition, the research and monitoring framework remains largely aspirational, with limited detail on methodologies, responsibilities, and how findings will inform adaptive management. The treatment of cumulative and transboundary impacts is also insufficient, particularly in relation to major developments such as the proposed BGHES and ongoing urban growth, which may significantly affect hydrological regimes, ecological connectivity, and visual integrity. The JIMP must also establish enforceable visitor carrying capacities, strictly controlled areas, and clearly define their implementation through joint governance arrangements. Without strengthening these operational, regulatory, and monitoring aspects, the JIMP remains largely strategic and may not effectively ensure the long-term protection of the property’s OUV. It is suggested that the revised version be submitted to the World Heritage Centre before its validation and future implementation.
8. The World Heritage Centre is yet to receive the reported submission for the boundary modification of the property. As requested in previous Committee Decisions and to ensure the standardization of the formal boundaries and to strengthen the legal protection of the property, the States Parties are encouraged to expedite the submission of the request for boundary modification.
Draft Decision: 48 COM 7B.93
The World Heritage Committee,
1. Having examined Document WHC/26/48.COM/7B.Add,
2. Recalling Decisions 45
COM 7B.10 and 46 COM 7B.60 adopted at its extended 45th (
3. Welcomes the continued cooperation between the States Parties, supported by their partners, to strengthen the protection of the property through joint measures, including invasive species control, monitoring, fire management, enhanced conservation actions, and law enforcement;
4. Expresses serious concern that cumulative impacts from large-scale infrastructure and ever-increasing tourism development within the property, its buffer zone, and wider setting continue to pose a significant threat to the Outstanding Universal Value (OUV) of the property, a situation exacerbated, among other things, by the fact that several development projects, which the States Parties have indicated to be at the scoping stage, are currently underway, and invites the States Parties to provide further details on the reported development projects that are under consideration as soon as more information is available;
5. Regrets the continued delay in completing and submitting the Strategic Environmental Assessment (SEA), despite repeated requests and the recommendations of the 2022 mission, and urges again the States Parties to expedite its finalization with technical guidance from IUCN, as well as its official submission, while ensuring that its conclusions and recommendations are fully integrated into all planning, zoning, and development decision-making processes affecting the property, its buffer zone and wider setting;
6. Notes with regret that no update was provided regarding the third-party concerns related to permits for two commercial tourism developments in highly sensitive zones on the Zimbabwean component of the property, noting that information available online indicates that these developments have already commenced operation, expresses its deep concern about the potentially irreversible impacts of these projects on the integrity and the visual attributes of the property and urgently requests the States Parties to report on the monitoring and mitigation measures in place to ensure that the infrastructures do not negatively affect the OUV of the property;
7. Also notes with regret that the construction of the Mosi-oa-Tunya Livingstone Resort Hotel proceeded without fully meeting approval conditions at the national level and following the Committee’s request to halt further activities until the Environmental and Social Impact Assessment (ESIA) had been submitted and reviewed, and reiterates its requests to the States Parties to implement the 2022 Reactive monitoring mission recommendation to develop a comprehensive Environmental and Social Management plan, which the States Parties indicated in their 2024 report was already being developed, ensuring that the mitigation measures put in place take into account the visual integrity and cumulative effects of the project and address its negative impacts on the property’s OUV;
8. Also reiterates its request to the States Parties to ensure that any project located within the property, its buffer zone, and wider setting with potential impacts on the OUV is subject to assessment through ESIA or HIA in conformity with the Guidance and Toolkit for Impact Assessments in a World Heritage Context and submitted for review prior to any decision;
9. Expresses continued concern regarding the proposed Batoka Gorge Hydro Electric Scheme (BGHES), further reiterates its request that the revised ESIA must be in full conformity with the above-mentioned guidance, including a rigorous assessment of alternative scenarios that avoid negative impacts on the OUV, as recommended by the 2022 Reactive monitoring mission, and be submitted to the World Heritage Centre for review, prior to taking any decision that is difficult to reverse;
10. Appreciates the submission of the draft Joint Integrated Management Plan (JIMP) 2025-2030, underlines that further amendment is needed to detail the zoning system of the property to function as an effective regulatory tool, as well as the operational, regulatory, and monitoring aspects, and requests the States Parties to further revise and submit the updated version of the JIMP to the World Heritage Centre for review, prior to its validation and future implementation, by:
a) Incorporating clearly defined safeguards and thresholds to mitigate against developmental pressures for the protection of the property’s OUV, and zoning of the property, including well-prescribed limits of acceptable use and permissible activities (including tourism and development infrastructures), in line with the objectives of protecting the OUV and in line with past Committee decisions,
b) Developing finer-scale maps of the zoning system to avoid any ambiguity in its implementation,
c) Establishing enforceable visitor carrying capacities and strictly controlled areas in sensitive zones,
d) Developing and operationalizing the research and monitoring framework, including the provision of detailed methodologies, the clear allocation of responsibilities, and the establishment of mechanisms to ensure that monitoring results effectively inform adaptive management,
e) Strengthening the consideration and management of cumulative and transboundary impacts on the OUV of the property, particularly of major developments such as the proposed BGHES and ongoing urban growth, including their potential effects on hydrological regimes, ecological connectivity, and visual integrity,
f) Ensuring that the JIMP is supported by adequate and sustainable financing to ensure its effective implementation, and monitoring for the long-term protection of the OUV;
11. Reiterates furthermore its request to 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;
12. Also requests that information on the current status of all proposed development projects reported at the scoping stage, including their precise location, and scale, be submitted to the World Heritage Centre as soon as such information becomes available, with particular attention to commercial tourism developments, notably the Cataract Island tours, Baines Restaurant and Six senses eco-lodges, located in highly sensitive areas, notably Cataract Island and its riverine rainforest within the Zimbabwean component of the property;
13. Finally requests the
States Parties to submit to the World Heritage Centre, by 1 February 2027, an
interim report including a copy of the updated JIMP, taking into consideration
the comments outlined above, and by 1 December 2027, an updated report on the state
of conservation of the property and the implementation of the above, for
examination by the World Heritage Committee at its 50th session.
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