The Role of NGOs in Protecting and Preserving Cultural Heritage in the EU: The Case of Slovenia-Austria Cross-Border Program

Abstract

The core part of this chapter is an analysis of how is the cultural heritage present in the EU Policies and in the Slovenia-Austria Interreg V Program in the previous and present multi-annual financial framework (2014–2020 and 2021–2027). The special focus is on the role of NGOs in protecting and preserving cultural heritage at the level of Slovenia. The final section identifies an example of a project idea titled HEGIRA-Heritage in Your Hands where NGOs in the field of cultural heritage are accepted as project partners. A historic forge in Bad Eisenkappel (Austria) serves as an authentic location to establish a “Centre for Forgotten Arts” where NGOs could play a distinctive role. Due to its strategically beneficial position, the center will serve as a gateway to Slovenia and bundle cross-border intangible cultural heritage offers. The implementation of the “Craftsmen in Residence” workshop series—aimed at schools, tourists, and interested citizens—will facilitate knowledge transfer and contribute to safeguarding traditional craftsmanship. HEGIRA builds capacity by connecting actors and institutions to develop an integrated cross-border tourist product, which will serve as a role model and can be transferred to other regions with similar territorial challenges and opportunities.

1. Introduction

An over 300-year-old forge in the south of Carinthia serves as an authentic location to establish a “Centre for Forgotten Arts” embedded in a cross-border EU project. For the project, it is assumed that a nonprofit association, dedicated to the preservation of traditional handicrafts and the revitalization of the forge as a unique local cultural heritage site, has already been founded. This is not the case at the current stage. It is further assumed that this association will act as a Lead Partner. The project partners were chosen by the authors based on their adequateness to meet the criteria of the EU Funding Program and the project objectives.

As cross-border regions, South of Carinthia and Upper Slovenia have a common handicraft culture and history, the European Territorial Cooperation (ETC) Program INTERREG V-A-SI-AT with its Investment Priority 6(c) “Protecting, promoting and developing cultural and natural heritage” is chosen for this case. The authors see sustainable regional development as a holistic concept, not limited to national borders. It must be understood in regions that make use of the strength of common resources. Based on that credo, this specific ETC Program is chosen.

The chosen funding program INTERREG V-A-Slovenia-Austria is part of the European Regional Development Fund (ERDF), which further is part of the European Structural and Investment (ESI) Funds. The European Territorial Cooperation Program, better known as INTERREG, is built around three strands of cooperation [1]:

• cross-border cooperation (INTERREG V A), where Austria takes part in seven Programs, which are Alpenrhein-Bodensee-Hochrhein (ABH), Austria-Germany/Bavaria (AT-DE), Austria-Czech Republic (AT- CZ), Slovakia-Austria (SK-AT), Austria-Hungary (AT-HU), Slovenia-Austria (SI-AT), and Italy-Austria (IT-AT).

• transnational cooperation (INTERREG B); where Austria takes part in three Programs, namely Danube Area, Alpine Space, and Central Europe.

• interregional cooperation (INTERREG C); where Austria takes part in four Programs, which are INTERREG EUROPE, INTERACT III, ESPON 2020, and URBACT III.

ETC is one of the two goals of Cohesion Policy (the other one being an investment for growth and jobs) and fosters joint actions and policy exchanges between national, regional, and local stakeholders from the different Member States. Its main objective is “to promote a harmonious economic, social and territorial development of the union as a whole” [2].

Concerning the historical and legal background of the ESI funds, it can be stated that one of the primary objectives of the EU is to assure equal income standards and economic development among the Member States and regions. Under this objective, the Union introduced in several stages its Regional and Cohesion Policy, implemented through the EU Structural Funds. In 1975, following the first EU enlargement, the main instrument of EU Regional Policy was established with the creation of the European Regional Development Fund (ERDF), which was meant to address the increasing problem of regional imbalances. In 1986, a common Regional Policy was created in the context of the Single Market Program and enshrined in the Community treaties with the Single European Act (SEA). The reform of the Structural Funds in 1988 established the main policy guidelines of EU Regional Policy, which are still valid today [3].

Article 174 of the Treaty on the Functioning of the European Union (TFEU) defines strengthening the economic, social, and territorial cohesion, reducing disparities between the levels of development of the various regions, and supporting the least favored regions (e.g., rural areas, areas affected by industrial transition, regions that suffer from severe and permanent natural or demographic handicaps). Article 175 requires that the Union is to support the achievements of these objectives through special funds [4].

There are still high regional economic disparities at the EU level. The highest value of GDP per head is five times the EU average, and the lowest value is about one-third of the EU average. More than a quarter of the EU regions are less developed ones (especially the Eastern-European Member States), where the GDP per head is below 75% of the EU average [5].

Particularly noteworthy is that information about the beneficiaries of EU funding is public. The Financial Transparency System (FTS) website can be found under the link http://ec.europa.eu/budget/fts/index_en.htm and provides search mechanisms and lists the names of the beneficiaries of the funds managed directly by the EC and their amounts received.

For funding managed by the Member States, publication of the names of beneficiaries is also mandatory and must be published on national websites. Equal treatment, equal access, and transparency are basic principles of EU funding. A listing of the transparency websites of the Austrian ESI Fund beneficiaries can be found on the ÖROK website [6]:

• ERDF:https://www.efre.gv.at/projekte/projektlandkarte INTERREG: https://www.keep.eu/ and Program websites

• ESF: https://www.esf.at/projekte/liste-der-vorhaben/

• EAFRD: https://www.transparenzdatenbank.at/

• EMFF: at the moment no platform installed

• ÖROK Project Database: https://www.projektdatenbank-oerok.at/ (selected projects, which contribute to relevant national strategies such as the Austrian Climate and Energy Strategy)

Traditional handicraft skills are a critically endangered intangible cultural heritage asset and therefore need safeguarding for future generations. The Austrian Commission for UNESCO warns in there in 2016 published study on “Traditional craftsmanship as an ICH and economic factor in Austria” that traditional crafts need more public awareness to be preserved. Entire professions and the associated knowledge and skills are threatened with disappearance. The Commission demands that it is time to counteract these negative tendencies. Not only as a sustainable response to the mass production of global markets and overflowing consumption but also to provide meaningful and promising education and training for future generations [7]. The CP also underlines the importance of safeguarding cultural heritage as a fundamental pillar for the improved regional tourist offer and sees a clear intervention need [8].

The focus of the project will be on former crafts directly linked to the mountain farming regions of Carinthia and Upper Slovenia. The thematic categorization of the traditional skills is based on the book “The forgotten Arts” [9]. For the selected project, the following crafts form a selection base:

• Woodland crafts (hurdle making, rake making, fork making, besom making, ladder making, charcoal burning, basket making)

• Building crafts (wooden buildings, walling)

• Crafts of the field (dry stone walling, making stiles, well digging)

• Workshop crafts (chair making, blacksmithing, wheelwrighting, coppering, sled making, crooks making, potting, brickmaking)

• Textiles and home crafts (spinning, wool craft, dyeing, candle making, soap making, traditional herbal medicine)

This chapter aims to embed the project into EU cultural heritage policies, EU cross-border cooperation, and the role NGOs could play in the realization of this project.

2. Cultural heritage in the EU policies

The EC’s survey in 2007 on the importance of cultural values among EU citizens has shown that 40–50% declare to visit historical monuments and museums [10]. Another noteworthy fact is that nearly half of the cultural heritage sites are situated in Europe. Italy comes first, followed by France, Germany, and Spain. Furthermore, nearly a quarter of UNESCO’s intangible cultural heritage is “located” in the EU [10].

The EP states that cultural heritage has multiple positive effects such as economic effects (e.g., positive impact on job creation, tourist attraction), social effects (e.g., as an identity factor favoring integration, cohesion, and participation), and also environmental effects (e.g., sustainable development of landscapes) [10].

Although the European Parliament points to the fact that cultural policy and care for cultural heritage are the sole responsibility of the Member States, Article 3(3) of the Treaty on EU states that the Union “shall ensure that Europe’s cultural heritage is safeguarded and enhanced.” Furthermore, the importance of cultural heritage is mentioned in the TFEU under Article 167, where it is stated that the EU “should encourage cooperation between the Member States” and support (i) the improvement of knowledge and dissemination of culture and history of European people and (ii) the conservation and safeguarding of cultural heritage of European significance [10].

The Committee of Ministers of the Council of Europe issued a recommendation for a European Cultural Heritage Strategy for the twenty-first century, which is based on the following three components: promotion of social participation and good governance, territorial and economic development on a sustainable basis, and knowledge and education with the contribution of research and training [11].

The European Commission stated in the press release on December 7th, 2018 that during the European Year of Cultural Heritage in 2018, over 6.2 million people took part in more than 11,700 events organized across 37 countries. To ensure a sustainable impact beyond 2018, the Commission introduced five new actions, prepared through exchanges with the Member States, the European Parliament, civil society, cultural operators, and international organizations such as the Council of Europe and UNESCO to protect and promote Europe’s rich cultural heritage [12]:

• Cultural heritage for an inclusive Europe: participation and access for all (e.g. initiative #WeareEuropeForCulture will fund pop-up exhibitions in public spaces)

• Cultural heritage for a sustainable Europe: smart solutions for a cohesive and sustainable future (e.g., European Capital of Smart Tourism, in 2019 Helsinki and Lyon was awarded the title)

• Cultural heritage for a resilient Europe: safeguarding endangered heritage (e.g., iRESIST+ project, which will help increase the capacity of historical buildings to resist earthquakes)

• Cultural heritage for an innovative Europe: mobilizing knowledge and research (e.g., knowledge transfer through Erasmus+ Program, map skills at risk, develop frameworks for raising awareness and attracting young people to heritage professions)

• Cultural heritage for stronger global partnerships: reinforcing international cooperation (e.g., international network for cultural heritage innovation and diplomacy under Horizon 2020).

The EU supports numerous cultural heritage actions and networks. The EU initiative European Capitals of Culture, for example, was launched already in 1985. European cities can apply under the Creative Europe Program to promote their cultural heritage and benefit from 1.5 million Euros funding (e.g., Melina Mercouri Prize). Another initiative is the European Heritage Label, which was launched in 2013. So far it has been awarded to 38 sites in the EU for their value as symbols of European ideas, history, and integration. The European digital library Europeana, which is funded through the Connecting Europe Facility Program, counts over 51 million items from across all Member States and is searchable in all EU official languages [10].

The European Heritage Days are a joint action of the Council of Europe and the European Commission. It is the most widely celebrated participatory cultural event in Europe with over 50,000 events organized every year in 50 European States with 30 million visitors. Furthermore, the Call for European Stories, which was launched as an activity of the European Year of Cultural Heritage 2018, will continue to support the European Framework for Action on Cultural Heritage, adopted in December 2018 to secure the long-term impact of the European Year of Cultural Heritage [13].

Through the European Cultural Routes program, the Council of Europe offers a model for transnational networks working on European heritage promotion. The Cultural Routes bring together heritage sites, universities, national, and regional authorities, SMEs, and tour operators. The European Cultural Routes counted 38 routes in 2019, for example, European Route of Historic Thermal Towns, Santiago de Compostela Pilgrim Routes, European Route of Industrial Heritage, European Route of Ceramics, Viking Route [14].

The EU Prize for Cultural Heritage better known as Europa Nostra Awards was launched in 2002 by the EC and promotes best practices related to heritage conservation, management, research, education, and communication. Furthermore, the European Cultural Tourism Network (ECTN) 2019 has announced the award for destinations of sustainable cultural tourism under the special theme “Culture and Heritage for Responsible Innovative and Sustainable Tourism Actions” [15].

Supporting culture initiatives can bring many benefits to cities and regions, as demonstrated, for example, through the European Capital of Culture Label. Cultural events create significant social and economic impact, particularly if they are embedded into a long-term culture- and creativity-led development strategy. Moreover, cultural initiatives may contribute to social inclusion and poverty reduction. It is, however, stressed by the EC that ESI Funds cannot replace national budgets in terms of maintenance of cultural heritage [16].

Culture is not directly mentioned among the Thematic Objectives of the Europe 2020 Strategy as they constitute means rather than objectives. However, there is one slight reference under the flagship initiative “A Digital Agenda for Europe” where it is stated that the European Commission will work to create a single market for online content to support the digitalization of Europe’s rich cultural heritage [17].

Investments in the renovation of historical buildings or building/renovation of cultural institutions are stated to be eligible if they are part of an overall economic development strategy for a specific territory and/or foster the socioeconomic integration of minorities through valorizing their cultural background. Cultural projects could also be a part of the ERDF support if they contribute to creating and safeguarding sustainable jobs through investments in SMEs [16].

3. Cultural heritage in the Slovenia-Austria Interreg V Program

3.1 The multi-annual financial framework 2014–2020

While cultural and creative industries are somewhat implicit to the Thematic Objectives regarding innovation and SME competitiveness, the conservation, protection, promotion, and development of cultural heritage are referred to under investment priority 6(c) under Thematic Objective 6 [16].

According to the “EC Guidance for desk officers: Support to culture-related investments” [16], particularly the following Thematic Objectives (TO) apply:

• TO 1 – Strengthening research, technological development, and innovation (including service innovation and clusters)

• TO 2 – Enhancing access to and use of information and communication technologies (ICT) including e-culture applications and services

• TO 3 – Enhancing growth and competitiveness of SMEs

• TO 6 – Preserving and protecting the environment and promoting resource efficiency (by protecting, promoting, and developing cultural and natural heritage)

• TO 8 – Promoting employment and supporting labor mobility (by enhancing accessibility to, and development of, specific natural and cultural resources as part of a territorial strategy for specific areas)

• TO 9 – Promoting social inclusion through improved access to social, cultural, and recreational services (as part of urban regeneration schemes)

• TO 10 – Investing in education, training, and vocational training for skills and lifelong learning by developing education and training infrastructure.

3.2 The multi-annual financial framework 2021–2027

The Cohesion Policy for the current period 2021–2027 focuses only on five Thematic Objectives. Regional development investments strongly focus on two objectives, where 65–85% of the resources will be allocated to. The first objective is a smarter Europe through innovation, digitalization, economic transformation, and support to SMEs, the second one is a greener, carbon-free Europe through investing in energy transition, renewables, and climate change actions. Further objectives are a more connected Europe with strategic transport and digital networks, a more social Europe supporting quality employment, education, skills, social inclusion, and equal access to healthcare, and a Europe closer to citizens by supporting locally led development strategies and sustainable urban development (EU Budget for the future. European Commission, 2018a). The European Commission stated in the press release on May 29th, 2018 that the overall goal of the modernized Cohesion Policy is to “drive up economic and social convergence while helping regions harness fully globalization and equipping them with the right tools for robust and lasting growth” [12].

The allocation method for the funds is still based on the GDP per head, whereas new criteria, for example, youth unemployment or integration of migrants are added. The new Cohesion Policy still follows the principle of shared management and is calculated based on three categories (less-developed, transition, and more-developed regions). The European Commission also announced administrative simplifications, for example, more flexibility to cope with unforeseen events and a single rule book for seven funds (ERDF, CF, ESF+, EMFF, the Asylum and Migration Fund, the Internal Security Fund, and the Border Management and Visa Instrument). Interregional Innovation Investments supports pan-European smart specialization strategies. The Seal of Excellence allows projects successfully evaluated under Horizon Europe to be funded by Cohesion Policy without having to pass another selection process. The centrally managed InvestEU fund addresses investment gaps using combining grants and financial instruments. This fund includes also special provisions to attract more private capital [18].

Support to Cultural Heritage beyond 2020 can be allocated especially to the fifth objective—Europe closer to citizens by supporting community-led local development strategies and sustainable urban development.

The new generation of interregional and cross-border cooperation Interreg VI removes cross-border obstacles and supports interregional innovation cooperation projects in the Multi-annual Financial Framework 2021–2027. This means regions can collaborate with other regions anywhere in Europe. This new approach aims to facilitate joint services and harmonize legal frameworks. The Commission proposes moreover to create Interregional Innovative Investments and states “Regions with matching ‘smart specialization’ assets will be given more support to build pan-European clusters in priority sectors such as big data, circular economy, advanced manufacturing or cybersecurity” (European Commission, 2020c). But there is one negative news to report. The opinion paper of the European Committee of the regions on the new ETC beyond 2020 states with regret that EU co-financing rates will decrease from 85–70% [19].

The European Council’s new strategic Agenda 2019–2024 focuses on four main priorities: (i) protecting citizens and freedom; (ii) developing a strong and vibrant economic base; and (iii) building a climate-neutral, green, fair, and social Europe; and (iv) promoting European interests and values on the global stage [20].

The authors aim to submit the HEGIRA project proposal (or parts of it) in this funding period. To enhance the competitiveness of the potential future project proposal, the authors suggest considering the following strategical adaptions [21]:

• Involvement of natural heritage project partners (e.g., Geopark Karawanken, Mountain farmers association Coppla Casa)

• Integration of research components to contribute to all dimensions of safeguarding as defined by UNESCO

• Embedding of the project in a wider regional development strategy (e.g., collect Letters of Intend to demonstrate this)

• Enhancement of overall attractiveness of the project proposal through elaboration on the common history of the CROSS-BORDER regions (e.g., additional work package on the historical iron trading route, themed path “Iron Route”)

• Extension of ICH digitalization components in the project to improve contribution to the EU’s Digital Agenda (e.g., Edutech, Gamification) following the example of the i-Treasures EU project, where the capture of ICH performances is based on the use of multi-sensing technologies (European Commission, 2016b).

• Facilitation of interregional partnerships with schools, build on the results of UNESCO Pilot Project “Teaching and learning with living heritage,” which already demonstrated how living heritage can be creatively integrated into various school subjects such as mathematics, physics, or even languages.

Without the facilitation of knowledge transfer and safeguarding measures, the valuable intangible cultural heritage of traditional craftsmanship will get lost in the region of Unterkärnten. There are no similar projects in this area addressing this challenge, thus there is an urgent need for initiatives—HEGIRA can be one of them.

Safeguarding intangible cultural heritage for future generations and transmitting the knowledge of traditional handicraft skills will not be an easy mission, but the following quote gives hope that EU funding will continue for initiatives in this area: “We will invest in culture and our cultural heritage, which is at the heart of our European identity” [20].

4. The role of NGOs in protecting and preserving cultural heritage: the Case of Slovenia

The Cultural Heritage Protection Act [22] stipulates that a non-governmental organization whose activities make an important contribution to the protection, the development of heritage awareness, the expansion of knowledge and skills related to heritage, and training and lifelong learning may acquire the status of a non-governmental organization, in the field of cultural heritage for the public benefit. The status is acquired based on the law governing the realization of the public interest in culture and with the reasonable application of regulations governing the operation of associations.

Under the same conditions, a church or other religious community may acquire the status of a non-governmental organization working in the field of cultural heritage for the public benefit if it has its legal personality.

A person who has the status of a non-governmental organization working in the field of heritage protection for the public benefit has the right to:

• giving opinions and proposing solutions to individual protection issues,

• participation in advisory bodies of the Ministry, provinces, and municipalities,

• participation in the procedures for the preparation of strategies from and other strategic documents of the state, provinces, and municipalities concerning the protection and preservation of heritage,

• performing other tasks in the field of protection based on public tenders.

A person who is also the owner of inheritance has the right to participate in matters of protection concerning that particular heritage, provided that there is no conflict of interest between his role as owner and the non-governmental organization.

The Strategy of cultural heritage mentions the following areas among development orientations and measures, where it determines the role of NGOs [23]:

• Promoting quality and continuous public information on heritage.

  Awareness of all the people of Slovenia about the importance of heritage for humanity, for the modern society and the individual, and the duties and rights related to its preservation in the original environment must be improved. This can be achieved by promoting heritage interpretation, quality media reporting, and supporting the efforts of all stakeholders in developing public awareness of the importance, vulnerability, and uniqueness of heritage in its original environment. NGOs can participate in increasing the diversity of approaches to developing public awareness of the value of heritage for society and in supporting joint promotional projects involving cultural operators, NGOs, and heritage communities. The set of possible activities for NGOs includes:

  • Public calls and tenders coordinated between stakeholders aimed at media promotion of heritage in public. Public tenders for non-governmental organizations in the field of heritage and informal heritage communities, promote new approaches to the recognition of heritage values.

  • Complement public calls for public protection service providers by giving priority to joint and innovative promotional projects on selected heritage themes.

  • Define in the media strategy the promotion of quality and continuous presentations of heritage content in the media.

• Encouraging individuals and heritage communities to inter/multigenerational and intercultural integration in heritage revitalization.

  The active involvement of different generations and groups in heritage activities needs to be improved in collaboration with heritage experts and heritage lovers. We expect the creation of new ways of connecting and a new division of roles and responsibilities within civil society. The measure, in which NGOs can participate, envisages the promotion of heritage communities and non-governmental organizations to inter/multigenerational and intercultural dialog in heritage revitalization.

• Encouraging individuals and heritage communities to inter/multigenerational and intercultural integration in heritage revitalization. The active involvement of different generations and groups in heritage activities needs to be improved in collaboration with heritage experts and heritage lovers. We expect the creation of new ways of connecting and a new division of roles and responsibilities within civil society. The measure, in which NGOs can participate, envisages the promotion of heritage communities and non-governmental organizations to inter/multigenerational and intercultural dialog in heritage revitalization. The set of possible activities for NGOs includes:

  • Agreement on a cross-sectoral program to encourage NGOs and heritage communities to inter/multigenerational and intercultural cooperation and to activate groups from different social backgrounds in heritage projects, in organizing activities and events on the topic of heritage.

  • Calls for tenders for the implementation of this program.

  • Complement public calls for cultural operators in ways that enable joint education projects accessible to older people and other vulnerable groups on heritage.

  • Upgrade and support the networking of institutions operating in the field of inter/multigenerational cooperation and include heritage content.

• Ensuring access to heritage for all. Accessibility in all areas of heritage needs to be improved to ensure a responsible attitude of individuals and communities toward it. Physical, intellectual, informational, technologically supported, and user-friendly accessibility cannot be ensured without the planned development of expertise. The measure, in which NGOs can participate, envisages increasing the diversity of accessibility tailored to individual target groups, including vulnerable groups, and increasing the scope of these activities. The set of possible activities for NGOs includes:

  • Preparation of a recommendation to improve different forms of accessibility for individual target groups.

  • Complement public calls for public care providers by promoting access to heritage for vulnerable groups.

  • Extend public calls for scholarships to allow more integration of scarce professions in the field of heritage protection into international training programs to improve heritage accessibility.

  • Audit of physical accessibility in buildings and premises in the field of heritage and development of improvement plans.

• Developing and disseminating knowledge and good practices for the transmission of heritage values. The task of all stakeholders is to promote and promote good practices that increase the understanding of the social role of heritage and indirectly promote economic growth. The measure, in which NGOs can participate, envisages the promotion of quality interpretation and presentation of heritage for tourism and other purposes, as well as the planned development of expertise for the interpretation of heritage values and their presentation to the public. The set of possible activities for NGOs includes:

  • Preparation of recommendations for the interpretation of heritage for tourism and other purposes.

  • Agreement on a cross-sectoral program of education in the field of interpretation and transmission of heritage values.

  • Implementation of such a program.

  • Involvement of heritage communities in the interpretation and presentation of heritage.

• Strengthening the role of heritage sites as a crossroads of modern society and active living and enrichment of free time. Heritage is a common good and a value of the living environment. It is therefore an important component of the public space of cities and other environments. By reviving it, we are increasing the value of common spaces intended for all citizens and visitors. This also promotes public dialog, which must be based on the “right to heritage” and include heritage content at all levels in spatial planning, renovation, urban planning, and maintenance. The measure, in which NGOs can participate, envisages support for initiatives for the integration of heritage into open public spaces and publicly accessible parts of buildings (integration with the implementation of architectural policy).

  In the calls for financing from the cross-border cooperation program till November 2020 [24]: 82 successful applicants were from business organizations of different kinds, 76 successful applicants were from municipalities and regional administration, 71 successful applicants were from development agencies, 68 successful applicants were knowledge institutions, 33 successful applicants were chambers, unions, and similar associations, 28 successful applicants were national authorities, ministries with agencies and similar institutions, 25 successful applicants were clusters and business support institutions, 14 successful applicants were NGOs, 15 successful applicants were nature parks and their organizations, 15 successful applicants were tourism organizations and museums, 6 successful applicants were hospitals.

  Types of beneficiaries supported under the investment priority are among others institutions, organizations, associations, and NGOs in the field of nature protection and conservation, environment, spatial planning, public transport, culture, and tourism.

5. An example of a project idea titled HEGIRA: heritage in Your Hands

Numerous private efforts have been undertaken to renovate and revitalize the over 300-year-old forge in the center of the small village of Bad Eisenkappel in the South of Carinthia. It is one of the last surviving examples of local history there, and the first recorded mention of it is in 1727 [25]. One coauthor’s family and a family friend saved the forge from demolition and purchased it by auction in 2008. All machines in the forge are driven by waterpower, the Francis Turbine, built-in 1920, was put back into operation and supplies also energy for the adjacent residential area. The forge was first publicly accessible on the September 26th in 2010 on the “Day of the Monument,” which is an initiative embedded within the “European Heritage Days.” In this yearly event, privately owned monuments can participate and are accessible to the public free of admission. The event is organized in Austria by the Austrian Federal Monuments Office (BDA). Furthermore, the historic forge has already been declared particularly worthy of protection by the BDA.

Over the last 10 years, a large amount of private money has been invested into the site, and no further progress is possible without public support. From the authors’ perspective, the cultural value of this historic object needs to be preserved for future generations. The project vision of the authors is to transform the spacious property of the old forge into a “Centre for Forgotten Arts,” where old traditional handicrafts can be experienced in an authentic environment. The garden area would be suitable for events, and the old farmstead could accommodate craftsmen. Moreover, an exhibition area and seminar facilities could be constructed in the old stable. For the implementation of this project vision, a nonprofit association or a foundation must be established, and the necessity of transferring the property to it must be examined.

The United Nations Educational, Scientific and Cultural Organization (UNESCO) defines cultural heritage as “the legacy of physical artifacts and intangible attributes of a group or society that are inherited from past generations, maintained in the present, and bestowed for the benefit of future generations” and sub-categorizes into [10]:

• tangible heritage composed of movable heritage (sculptures, paintings, coins, and manuscripts), immovable monuments (including archeological sites), and underwater cultural heritage (shipwrecks, underwater ruins, and cities)

• intangible heritage (oral traditions, performing arts, crafts, and rituals)

• natural heritage (cultural landscapes, geological, biological, and physical formations)

• cultural heritage endangered by destruction and looting in armed conflict.

It can be stated that the project thus addresses two cultural heritage aspects. On the one hand, the traditional handicrafts (intangible cultural heritage), and on the other hand, it embeds the implementation idea in the authentic environment of the forge (tangible heritage monument).

According to the Cooperation Program INTERREG V-A Austria-Slovenia, it can be stated that the project location Bad Eisenkappel (in Slovenian Železna Kapla) is within the eligible Program area and belongs to the territorial unit NUTS 3 Unterkärnten [8]. Not far from Bad Eisenkappel there are two routes (border crossings) to Slovenia. The pass Seebergsattel (in Slovenian Jezerski vrh) is 16 kilometers away and leads to the Slovenian region Savinjska, and the pass Paulitschsattel (in Slovenian Pavličevo sedlo) is 17 kilometers distance and leads to the Slovenian region of Gorenjska. In early times, the Seebergsattel was an important trade route for iron transport from Eisenkappel to Kranj in Slovenia. Records show that the roars of the hammer mills in Eisenkappel, which were built on the shore of the river Vellach (in Slovenian Bela), were heard from afar. Columns of smoke from the lead smelters rose, their ores being extracted below the summit of the Obir. The much younger Paulitschsattel was constructed during the nineteenth century and the nearby historical border crossing above the Leonhard Church fell into oblivion. Due to the common history and the geographical proximity, these two regions are selected as locations for the project partners with the premise of having a clear background in local cultural heritage. Moreover, it is an essential precondition that these partners operate established museums to enable knowledge transfer to the planned “Centre for Forgotten Arts.” As outlined in the Cooperation Program, both Slovenian regions are within the eligible Program area [8].

The data of Statistic Austria show that population development is decreasing in Bad Eisenkappel [26]. Also, the Cooperation Program [8] refers on page 9 to statistical data of EUROSTAT 2014 and a population decrease in Unterkärnten of minus 3%. Additionally, the number of overnight stays is significantly lower in comparison to the years before 2013. It can also be seen that the overnight stays in Bad Eisenkappel remain low during the summer months, whereas the average number in the province (Bezirk) rises remarkably [27].

Similar territorial challenges can be observed in the Slovenian regions. The Cooperation Program [8] states on page 9 that all regions show employment rates of elderly people (aged 55–64) below the EU-28 average of 50.1% in 2013. It is furthermore mentioned that the need for network activities and knowledge transfer among the actors is getting more and more important.

Traditional handicraft skills are a critically endangered ICH asset and therefore need safeguarding for future generations. The Austrian Commission for UNESCO warns in there in 2016 published study on “Traditional craftsmanship as an ICH and economic factor in Austria” that traditional crafts need more public awareness to be preserved. Entire professions and the associated knowledge and skills are threatened with disappearance. The Commission demands that it is time to counteract these negative tendencies. Not only as a sustainable response to the mass production of global markets and overflowing consumption but also to provide meaningful and promising education and training for future generations [28]. The Cooperation Program [8] also underlines the importance of safeguarding cultural heritage as a fundamental pillar for the improved regional tourist offer and sees a clear intervention need.

The focus of the project will be on former crafts directly linked to the mountain farming regions of Carinthia and Upper Slovenia. The thematic categorization of the traditional skills is based on the book “The forgotten Arts” [9]. For the present project, the following crafts form a selection base:

• Woodland crafts (hurdle making, rake making, fork making, besom making, ladder making, charcoal burning, basket making)

• Building crafts (wooden buildings, walling)

• Crafts of the field (dry stone walling, making stiles, well digging)

• Workshop crafts (chair making, blacksmithing, wheelwrighting, coppering, sled making, crooks making, potting, brickmaking)

• Textiles and home crafts (spinning, wool craft, dyeing, candle making, soap making, traditional herbal medicine)

It is necessary here to clarify exactly what is meant by Intangible Cultural heritage. This chapter uses the following definition of Intangible Cultural heritage suggested by UNESCO [28]: “Intangible cultural heritage” means the practices, representations, expressions, knowledge, and skills – as well as the instruments, objects, artifacts, and cultural spaces associated therewith – that communities, groups and, in some cases, individuals recognize as part of their cultural heritage. This intangible cultural heritage, transmitted from generation to generation, is constantly recreated by communities and groups in response to their environment, their interaction with nature, and their history, and provides them with a sense of identity and continuity, thus promoting respect for cultural diversity and human creativity.”

Intangible Cultural heritage as defined above is manifested in the following domains [29]: (i) oral traditions and expressions, including language as a vehicle of the intangible cultural heritage; (ii) performing arts; (iii) social practices, rituals, and festive events; (iv) knowledge and practices concerning nature and the universe; and (v) traditional craftsmanship.

This chapter uses the following definition of “safeguarding” suggested by UNESCO [29]: “Safeguarding means measures aimed at ensuring the viability of the intangible cultural heritage, including the identification, documentation, research, preservation, protection, promotion, enhancement, transmission, particularly through formal and non-formal education, as well as the revitalization of the various aspects of such heritage.”

Former case-relevant EU projects with synergies to the present project idea exist. Learnings will be taken from their outcomes and potential future partnerships might be established.

• EUREVITA (ongoing, Interreg AT-SLO 14–20). The project aims to develop a sustainable cross-border labor economy structure to revitalize cultural heritage and rare crafts. The project aims to revitalize old crafts through innovative cross-border training and networking measures. The project is funded under the thematic objective (TO) 11, which is “better public administration” [30].

• EUREVITA PANNONIA (ongoing, Interreg AT-HU 14–20) is the equivalent of the EUREVITA project within the ETC between Austria and Hungary [31].

• CRAFTS (2002–2005, Interreg IIIB Alpine Space). The pilot project aimed to create synergies between the craft and tourism sectors. CROSS-BORDER actions, for example, between Slovenia and Carinthia were announced to be developed. The project consortium consisted of 12 project partners. The project’s results were inter alia the display and sale of products under the management of local traders, the design of a hemp route and an eco-museum, an international wood exhibition, and a tourist route to rediscover the industrial traditions of the area [32].

• RURITAGE (Horizon 2020). The project focuses on cultural heritage as a driver for sustainable growth. So-called “Replicators” learn from role models and a set of tools will be available for knowledge building. Heritage-led rural regeneration strategies are developed in a co-creation process involving stakeholders and the local community in Local Rural Heritage Hubs [33].

• ARTISTIC (2017–2020, Interreg Central Europe) is developing a model for improving the marketing skills of those involved in ICH and is testing crowdfunding as an alternative financing option for local ICH projects in pilot regions [34].

• CRAFTS 3.0 (2017–2020, Erasmus+) is supporting the transition of handicraft teachers and trainers to the Digital Age and consists of a consortium from seven countries. In a co-creation process, innovative digital educational methods will be designed for teaching crafts and a guide for the craft sector in Europe will be published [35].

• MADE IN (2018–2020, Creative Europe) is a cooperation project between numerous institutions with a broad artist network and has a craft research and design focus. Workshop visits, residency programs, seminars, and traveling exhibitions are part of the work program [36].

• FORGET HERITAGE (2016–2019, Interreg Central Europe) identified innovative replicable sustainable private-public cooperation management models of abandoned historical sites. The development of management tools to influence national policies, develop human resources, and strengthen local systems including an analysis of transferable elements in good practices of cultural heritage management were key assets of the project [37].

6. Conclusion

Cultural heritage is recognized to have a high value for individuals, communities, and societies. As an identity factor, it fosters social cohesion, and as an economic driver, it contributes to job creation in the cultural sector as well as in related sectors such as gastronomy and hotel businesses. Moreover, regions with a rich cultural heritage can benefit from various environmental effects, such as the enhancement of the uniqueness of the place.

The EC’s survey in 2007 on the importance of cultural values among EU citizens has shown that 40–50% declare to visit historical monuments and museums [10]. The European Year of Cultural Heritage, which was launched in 2018, illustrates the valorization of cultural heritage on a high policy level. The creation of the UNESCO Convention for the Safeguarding of the Intangible Cultural Heritage, signed in 2003, underscores the necessity for the preservation of i.a. oral expressions such as languages, performing arts, festive events, practices concerning nature, and traditional craftsmanship [38]. Safeguarding ICH is a shared responsibility between different actors ranging from policymakers to stakeholders and other societal actors. Although Culture is not directly mentioned among the Thematic objectives of the Europe 2020 Strategy, there is one slight reference under the flagship initiative “A Digital Agenda for Europe” where it is stated that the EC will work to create a single market for online content to support the digitalization of Europe’s rich cultural heritage [17]. The most obvious finding to emerge from the “EC Guidance for desk officers: Support to culture-related investments” [16] is that it is indispensable to embed the project proposal in a wide regional development strategy with a broad network of regional cooperation partners. This is a crucial factor for eligibility and increases the opportunities for a positive EU funding commitment.

Such contribution to safeguarding and preserving cultural heritage is a project proposal within the ETC Program Interreg V-A Slovenia-Austria titled HEGIRA – HEritaGe In youR Hands where NGOs in the field of cultural heritage are accepted as project partners. The 3-year project will safeguard the rich tangible and intangible cultural heritage of the cross-border regions and contribute to sustainable tourism development across borders, which is one of the Program objectives.

A historic forge in Bad Eisenkappel serves as an authentic location to establish a “Centre for Forgotten Arts” facilitated by a co-creation process with the involvement of key stakeholders. Due to its strategically beneficial position, the center will serve as a gateway to Slovenia and bundle cross-border and cross-regional intangible cultural heritage offers, thus enabling capacity building and the enhanced use of synergies. The joint development and implementation of the Craftsmen in Residence workshop series aimed at schools, tourists, and interested citizens (knowledge seekers) will facilitate know-how transfer between knowledge providers (craftsmen) and the knowledge seekers. This will increase the recognition and contribute to the knowledge transfer of traditional handicraft skills and their safeguarding for future generations. The creation of innovative digital learning material and events such as the Forgotten Arts Summer Festival and Christmas Markets are further core aspects of the project and will enhance the visibility of traditional craftsmanship. Unique about HEGIRA is the combination of the abovementioned measures and activities while revitalizing the last surviving example of local history in Bad Eisenkappel. HEGIRA builds capacity by connecting Intangible cultural heritage actors and institutions to develop an integrated CROSS-BORDER tourist product, which will serve as a role model and can be transferred to other regions with similar territorial challenges and opportunities.

This approach is especially relevant for rural regions, which on the one hand are often the last resort for endangered traditional handicrafts and their related build artifacts and on the other hand face territorial challenges, such as unemployment of elderly people or rural depopulation. The preservation of tangible and intangible cultural heritage can serve as a nucleus to address and transform the challenges into opportunities for these rural regions.