Authors:
Huilin Yang, Ph.D. candidate at the School of Public Administration, Nanjing Agricultural University; visiting scholar at the Department of City and Regional Planning, University of North Carolina at Chapel Hill. yanghuilin@stu.njau.edu.cn
Yuefang Rong, Professor at the School of Architecture and Urban Planning, Beijing University of Civil Engineering and Architecture; visiting scholar at the Department of City and Regional Planning, University of North Carolina at Chapel Hill. rongyuefang@bucea.edu.cn
On April 19, 2024, Lance Gloss, Project Manager at The Conservation Fund, delivered a lecture on activating the economic benefits of natural resources in the Okefenokee region of southeastern Georgia at the Department of City and Regional Planning at the University of North Carolina (Figure 1).
As a tool for environmental protection, conservation policies are one of the most important and effective ways to protect biodiversity worldwide. The mechanism for realizing economic benefits is a key link in accelerating the ecological civilization construction of conservation areas and promoting the transformation of “clear waters and green mountains” into “mountains of gold and silver.” It is also a focal point of current academic attention. The work carried out in the process of applying for the World Heritage designation for the Okefenokee National Wildlife Refuge provides a valuable case study for realizing the economic benefits of natural resource conservation and offers a model of experience for enhancing self-driven ecological resource protection. The author will introduce the content of the lecture and its applicable insights following the structure of “Project Introduction — Economic Benefit Forecast — Experience Summary.”
1. Understanding the World Heritage Project of the Okefenokee Region
1.1 Overview of the World Heritage Project
In 1972, UNESCO adopted the Convention Concerning the Protection of the World Cultural and Natural Heritage to safeguard the world’s cultural and natural heritage. In 1976, the World Heritage Committee, under UNESCO, was established, and the World Heritage List was created. As of July 2024, UNESCO has designated 26 sites in the United States as World Heritage Sites; China has a total of 59 World Heritage Sites, including 15 natural heritage sites, the highest number of natural heritage sites in the world：https://whc.unesco.org/en/list/&&order=country.
1.2 Progress in the Okefenokee Region’s Application
UNESCO’s criteria for World Heritage designation are based on outstanding universal value. Heritage sites must demonstrate that they meet the criteria for natural or cultural sites, meaning their “significance transcends national boundaries and is of common importance for present and future generations of all humanity.” Specifically, World Heritage recognition is determined by ten criteria, of which at least one must be met to obtain recognition. For these criteria, the Okefenokee region most closely aligns with the following two:
(1) Criterion IX: Representing ongoing ecological and biological processes in the evolution and development of terrestrial, freshwater, coastal, and marine ecosystems and communities of plants and animals.
The Okefenokee region’s complete, precipitation-based hydrological conditions distinguish it from other wetland ecosystems in the United States, especially its unique wetland scale. The region includes parts of the southeastern U.S. longleaf pine savannas, an ecosystem that once dominated the southeastern United States but now retains only 4% of its original distribution.
(2) Criterion X: Containing the most significant natural habitats for in-situ conservation of biological diversity, including those containing threatened species of outstanding universal value from the point of view of science or conservation.
In addition to its unique status as a swamp (a relatively rare type of wetland), the Okefenokee region contains peat layers, terrestrial prairies, streams, cypress forests, and longleaf pine forests, and is home to over 600 plant species and a large number of animals. It harbors many significant endemic species of reptiles, amphibians, birds, and numerous cypress trees, many of which are over 500 years old.
The U.S. Fish and Wildlife Service manages the Okefenokee Wildlife Refuge, whereas other U.S. World Heritage Sites are under the jurisdiction of the National Park Service. However, the National Park Service’s Office of International Affairs will nominate the Okefenokee region to UNESCO on behalf of the United States, with the nomination expected in December 2024. If the application is successful, it will be confirmed as a World Heritage Site in the summer of 2026. At that time, the Okefenokee Wildlife Refuge will become the first area in the U.S. National Wildlife Refuge System to achieve World Heritage status.
2. Economic Benefit Forecast of the Project
2.1 Impact on Tourism
Inclusion in the World Heritage List has boosted tourism in similar heritage sites across North America. The experiences of other U.S. World Heritage Sites help adjust expectations for changes in tourism after the project is approved. It is worth noting that many long-established World Heritage Sites attract large numbers of visitors. For example, the Everglades National Park (designated in 1979) attracts over one million visitors annually; Yellowstone National Park attracts 3 to 4.5 million visitors annually. It has been found that World Heritage status influences tourism intentions (Table 1).
If the Okefenokee region becomes a World Heritage Site in 2026, and visitor numbers increase as expected, several outcomes may occur: first, an increase in total tourist spending; second, changes in the characteristics of visitors and tourists, including more overnight and international visitors, which will impact the growth and duration of spending.
Given the high likelihood of these predictions, the region is vigorously enhancing its tourism capacity: the three counties of southeastern Georgia (Charlton, Clinch, and Ware) are working to increase lodging supply and hospitality services, which is crucial for deriving economic benefits from the World Heritage project.
In addition, World Heritage designation is likely to interact positively with investments in visitor experiences. The region’s government and non-profit organizations are actively exploring ways to enhance visitor experiences. Four major capital investments have been identified so far, including a dark sky observatory, a nature center, a cultural and community center, and a new visitor center at the northwest entrance, which will strengthen the economic benefits generated by the World Heritage project’s approval.
2.2 Impact on Tourism Infrastructure Investment
While applying for World Heritage status, the region is planning a series of investments in tourism infrastructure. Notably, the U.S. Department of the Interior has begun constructing a new visitor center at the Okefenokee Wildlife Refuge, with a construction cost of $4.5 million, along with plans to increase investments in exhibits and experiences.
Additionally, a total of $33.5 million in infrastructure projects, known as the “Okefenokee Experience,” are in the planning stages for the three counties. At the entrance to Okefenokee Swamp Park, the master plan for a new nature center has been completed, with an estimated construction cost of $11 million, rising to $16.9 million, including adjacent improvements. Two other infrastructure projects are also nearing completion of their master plans: in Clinch County, a site has been identified for an astronomical observatory, with an estimated construction cost of $5.4 million; in Charlton County, a cultural history and community center is planned, with an estimated construction cost of $10.8 million【data sourced from The Conservation Fund internal report】.
These improvements may be dynamically linked to the approval of the World Heritage project, as the increased recognition of the World Heritage site is expected to drive tourists to these new locations. In addition to directly generating employment and income effects, these sites will also improve visitor experiences and lead to more positive economic benefits (Table 2).
Construction itself will have a significant economic impact. Based on the cost estimates above, the Okefenokee Experience facilities and the northwest region visitor center combined will create 306 jobs (direct impact) and 56 auxiliary service jobs (indirect and induced impact), with total output exceeding $46 million and generating $4.6 million in total tax revenue. Furthermore, the ongoing operation of these facilities is likely to sustain at least 47 new jobs and generate over $430,000 in annual tax revenue【data sourced from The Conservation Fund internal report】.
2.3 Impact on Tourism-Based Economic Development
The World Heritage project will bring significant economic development potential to the gateway communities leading to the Okefenokee region. The scale and quality of the economic impact will depend on how these communities, the state of Georgia, the U.S. Fish and Wildlife Service, and businesses and non-profit organizations act to capitalize on this opportunity.
First is the brand effect. Integrating the World Heritage brand with the regional brand is a feasible path to enhancing economic benefits. Online and offline marketing within and outside Georgia can promote potential tourists and strive to align the visitor experience with the World Heritage brand experience.
Second is the impact on the visitor experience. World Heritage visitors, especially international visitors, may seek more than just a general understanding of the Okefenokee Swamp. Cultural and historical experiences, agricultural, forestry, and freight railroad experiences (regional economic and lifestyle features), and a range of lodging and dining experiences may attract international and overnight visitors.
Third is the impact on small businesses. To meet the new hospitality demands, the three counties of Georgia need to increase hotel beds, restaurants, retail, outdoor recreation equipment stores, and other visitor-oriented businesses. These industries are currently underdeveloped and unable to fully capture the potential spending from tourists, thus much of the economic development potential is left untapped. Local governments, universities, entrepreneurial support organizations, and lending institutions can support residents in starting businesses in these areas. Small business development is more likely to enhance wealth accumulation effects for residents. However, compared to agriculture, forestry, and services, tourism-based economic development often faces the challenge of lower wages. Small businesses, if they can control their operating equity, may gain more economic benefits.
Fourth is the impact on business recruitment. More dining and retail options, richer cultural and natural experiences, and a stronger regional brand may collectively improve the quality of life. This makes it easier for local businesses to recruit, train, and retain high-quality workers.
Fifth is the impact on ecological conservation. Ecotourism is closely related to natural resource conservation. The success and sustainability of tourism in the Okefenokee region depend on its ecological vitality. Degraded natural resources cannot achieve or maintain World Heritage status, nor can they attract a large number of tourists. Ecotourism can bring more income and conservation incentives to the natural resources of the Okefenokee Swamp and its surrounding areas. This will help the continued development of ecotourism and other natural resource sectors, such as agriculture and forestry, by improving wildlife management, water quality, and more.
Sixth is the impact on outdoor recreation. By offering multi-level swamp tour options through kayaking, canoeing, and other boating experiences in the Okefenokee Swamp, St. Marys River, and Suwannee River, both residents and tourists can enjoy enhanced experiences. These elements are particularly important for attracting domestic tourists. Similarly, investing in infrastructure and businesses to support fishing, hiking, and cycling in the region can diversify visitors and increase the number of overnight and repeat visitors.
Seventh is the impact on local education. World Heritage project investments may positively impact local education related to the swamp. Facilities serving tourists should also serve residents, especially young people, whose connection to the swamp is vital to the region’s culture. Many tourists will seek information from locals outside formal tourism channels. In informal reception areas such as restaurants, gas stations, streets, and around the swamp, residents’ ability to interact with tourists depends on their understanding of this important natural resource.
2.4 Summary
In conclusion, the Okefenokee region is well-positioned to develop the local economy. Participation in the World Heritage project will help accumulate local wealth and ensure the long-term sustainability of ecotourism in the region. As targeted investments in the overall experience of the region are made, the economic benefits of World Heritage status will become increasingly apparent.
3. Lessons from the Project
Around the world, when facing natural resource conservation, there is a tendency to focus on the non-economic value of resources while overlooking the powerful regulatory role of market mechanisms. In fact, establishing World Heritage projects can not only effectively mobilize public initiative and enthusiasm for resource conservation through market mechanisms, improving conservation outcomes, but also significantly increase residents’ income levels and government tax revenues in project areas. This provides many valuable lessons for China in consolidating the achievements of ecological civilization construction, rural revitalization strategies, and adjusting various resource protection strategies.
3.1 Strengthening Infrastructure Support for the Realization of Natural Resource Value
Infrastructure, as a link connecting various aspects and realizing the value of different types of natural resources, can improve visitor experiences and bring positive economic benefits. To this end, demonstration bases for the realization of natural resource value can be established, infrastructure improvement projects can be implemented, and supporting facilities can be enhanced. In protected areas, functional areas such as observation decks, cultural corridors, fitness squares, and convenience service stations can be set up to guide the flow of people and provide a complete service platform for the public to share the value of resources. For example, the Okefenokee region has promoted infrastructure construction in sync with the World Heritage project application, hoping that the successful application will bring more tourists and that facility improvements will enhance visitor experiences, thereby generating greater economic benefits.
3.2 Stimulating Diverse Stakeholder Participation in Natural Resource Conservation
Natural resource conservation requires the joint efforts of talent from various fields. Therefore, when implementing various conservation strategies, it is essential to strengthen the understanding of the value and importance of natural resource assets among various directly involved stakeholders. In addition to enhancing awareness of environmental concerns and increasing social responsibility, an interest linkage mechanism should be established to bring the green development concept and the ecological common prosperity concept into conscious action, promoting a new pattern of resource conservation and development led by the government with the participation of all sectors, ensuring that all stakeholders share the benefits of natural resource conservation. For example, in the Okefenokee region, the government, non-profit organizations, and community residents all played important roles in jointly supporting the World Heritage application.
3.3 Green Education Values Leading the Sustainable Development of Protected Areas
First, science education on the ecosystem and biodiversity of the protected area can be provided to residents, enhancing their understanding and awareness of the local natural resources, and increasing their environmental awareness and conservation awareness. Second, cognitive education on cultural history and natural resources can be provided to residents, stimulating their interest in local traditional culture, and enhancing their sense of belonging and responsibility towards the protected area. Additionally, ecological tourism knowledge and skills can be taught to residents, cultivating their potential as eco-tourism guides or service personnel, providing them with employment opportunities, and promoting local economic development while protecting local natural resources. For example, the Okefenokee region has enhanced residents’ understanding and awareness of natural resources through educational activities, increased their environmental protection awareness, and provided tourists with accurate information and better services.
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