Arts councils,policy-making and “the local”

ABSTRACT

In the British Isles, national policies for the arts are primarily viewed as the responsibility of arts councils with statutory duties to distribute state funding that meet the requirements of both “arms-length” principles and national strategic frameworks. This paper explores the tensions between policy making for the nation-state and for “the local” through comparative research on the arts councils (and equivalent bodies) in Scotland, England and Northern Ireland. Drawing on in-depth qualitative interviews with senior representatives from these organisations, it explores their notions of, responsibilities to and affiliations with “the local”. Findings suggest that despite their different models and relationships to the nation-state, and the disparities in the scale of investment, these national policy bodies commonly rely on networked governance to facilitate their relationship to “the local” which risks reproducing national interests, limiting the localised agency of place-based approaches and contributing to a culture of competition within cultural policy.     

Shaping screen talent: Conceptualising and developing the film and TV workforce in Scotland

Together with “creativity”, the concept of “talent” has emerged within UK and global policy discussions as being central to unlocking economic success within the creative industries. At a crucial time of political and technological change, Scotland finds itself competing within a highly competitive global market to identify, attract and retain creative talent and strengthen its skills base. As such, developing “talent” is a key aspect of the Scottish Government's Strategy for the Creative Industries. However, while creativity has been interrogated across academic disciplines in recent years, talent remains under-theorised within the academy and lacks a clear definition across policy and industry. Taking the screen industries as its focus, this paper draws on empirical data derived from a series of knowledge exchange workshops funded by the Royal Society of Edinburgh designed to initiate dialogue between academics, policy-makers and stakeholders within Scotland and beyond. In doing so, it scopes out some of the key ways in which screen “talent” is conceptualised by these groups and raises questions regarding how particular understandings may impact on policies designed to identify, attract and retain a diverse range of skilled workers within the sector. We argue that greater precision should be used in policy discourse to emphasise the importance of developing particular and discrete craft skills rather than privileging a workforce that is highly flexible and mobile. We also suggest that policy-makers and educators must acknowledge and encourage transparency regarding the precariousness of building a career within the screen industries.     

Culture without “world”: Australian cultural policy in the age of stupid

In March 2013, after six years of consultation, an Australian Labor government launched the national cultural policy document, Creative Australia. In July 2013, a Coalition government was elected, Senator George Brandis became Minister for the Arts, and the policy was dumped. With it went cross-party consensus about funding rationales and measurement strategies, with disastrous consequences for the cultural sector. This cautionary tale of gaffes, pay-back and abrupt changes of direction, highlights the fragility of policy memory that condemns artists and arts managers to a never-ending reinvention of the evidentiary wheel. Our paper examines the problem of collective understanding (“world”) in cultural policy-making in Australia, exacerbated not only by the short-term electoral cycles which undermine long-term cultural outcome timescales, but by a fixation on what Hannah Arendt calls “the peculiar and ingenious replacement of common sense with strict logicality”. Evidence of value is only meaningful when it occurs in a policy memory that can fully avow it and respond in appropriate ways. Measurement methods are over-determined by epistemology and by experience. We argue that the balance between these determinants of effective cultural policy-making has been lost. An emphasis on numerical data – especially economic data – has forced arguments for culture into a decontextualised register of quantitative proof. Recent events in Australia suggest that different, more direct ways of engaging with cultural policy-making are required for the problem of collective understanding to be successfully assayed.     

The art of the good life: culture and sustainable prosperity

ABSTRACT

The creative economy has seen cultural policy swallowed up by a narrow vision of economic growth, its impacts on the urban fabric captured by property developers, and its promises of meaningful activity challenged by the exploitation and inequities of cultural labour markets. So it needs to be abandoned and re-thought, but on what basis? This paper analyses the potential for cultural work to encourage alternative visions of the “good life”, in particular, how it might encourage a kind of “sustainable prosperity” wherein human flourishing is not linked to high levels of material consumption but rather the capabilities to engage with cultural and creative practices and communities. We critically explore these ideas in three locations: a London borough, a deindustrialised city in England’s midlands and a rural town on the Welsh/English border. Across these diverse landscapes and socio-economic contexts, we look at different versions of the good life and at the possibilities and constraints of cultural activity as a way of achieving kinds of sustainable prosperity.     

Mapping cultural assets and evaluating significance: theory,methodology and practice

Over the last decade in the UK, there has been a notable shift in the popularity and use of cultural mapping as a methodology for policy making at a regional and local level. This follows increased demand for an informed framework for planning arts and cultural facilities from local and regional government and from within the cultural sector (Evans, 2008: p. 65). The article begins with an exploration of cultural mapping within cultural policy, which explores the context for the growth in this area of activity, and why this kind of activity appeals to policy makers and organisations. It then goes on to examine four cultural mapping exercises which have been undertaken in recent years in the UK. These studies have been chosen because although they all focus the mapping of cultural assets within a specific geographic area, they differ to one degree or another in purpose, context, definition, geographic scale and methodology. They illustrate the narrow range of approaches deployed in the cultural mapping field in the UK, and as such provide a useful means of critically reviewing their limits as well as highlighting the issues and challenges faced by cultural cartography in practice. The article concludes by considering the type of mapping research that is “allowed” within the discursive confines of consultancy based cultural policy research.     

Participation and provision in arts & culture – bridging the divide

ABSTRACT

Successive policies and efforts to increase participation in a range of arts and cultural activities have tended to focus on the profile and attitude of individuals and target groups in order justify public – and therefore achieve more equitable – funding. Rationales for such intervention generally reflect the policy and political regime operating in different eras, but widening participation, increasing access and making the subsidised arts more inclusive have been perennial concerns. On the other hand, culture has also been the subject of a supply-led approach to facility provision, whether local amenity-based (“Every Town Should Have One” – Lane, 1979. Arts centres – every town should have one. London: Paul Elek), civic centre or flagship, and this has also mirrored periodic growth in investment through various capital for the arts, municipal expansion, urban regeneration, European regional development and lottery programmes. Research into participation has consequently taken a macro, sociological, “class distinction” approach, including longitudinal national surveys such as Taking Part, Target Group Index, Active People and Time Use Surveys, whilst actual provision is dealt with at the micro, amenity level in terms of its impact and catchment. This article therefore considers how this situation has evolved and the implications for cultural policy, planning and research by critiquing successive surveys of arts attendance and participation and associated arts policy initiatives, including the importance of local facilities such as arts centres, cinemas and libraries. A focus on cultural mapping approaches to accessible cultural amenities reveals important evidence for bridging the divide between cultural participation and provision.     

Participation as policy in local cultural governance

ABSTRACT

This article takes on participation not as taking part in cultural activities per se but in cultural policy-making, by studying the transformation and institutionalisation of participatory processes. Focusing on Switzerland, a federalist country where local and private actors play key roles in cultural policy, several processes by which different actors participate in local cultural policy-making are explored. Top-down procedures, such as formalised mandatory consultation procedures or the inclusion of cultural actors in administrative expert committees, coexist with bottom-up grassroots initiatives that can complement or even supplant traditional participatory processes. Furthermore, certain alternative modes and concepts of participation, such as the “cultural council”, circulate between different cases, across levels of state and in time. Participatory processes in cultural policy-making need to be seen as public policies in their own right, which can aim to depoliticise policies and procedures. Furthermore, actors need certain resources in order to participate, and venues aimed at opening participation do so in a restrained framework, focusing mostly on artistic and cultural elites rather than encourage larger citizen participation.     

Culture and the Scottish Household Survey

In 2007 the Scottish Government introduced an outcomes based approach to culture set within a National Performance Framework. One of the main data sources to measure “culture” in Scotland is the Scottish Household Survey (SHS). In this article, the SHS and its “Culture and Sport” Module are explored to show how useful the data is within the Scottish Government's economic agenda. This way, the paper reflects on the usefulness of the main data source used to understand cultural activity within Scotland. There are general difficulties measuring “culture”, but overall the SHS provides adequate national data for Scotland on cultural participation and attendance. However, the SHS cannot provide in-depth local level information and provides limited data on non-participants. Other surveys in Scotland and England give some example practices that could be incorporated to improve survey outcomes. Overall, the SHS is a useful policy tool but more could be done to utilise the data it can provide on the Scottish cultural sector.     

“Supporting excellence in the arts: from measurement to judgement”

The DCMS paper “Supporting excellence in the arts”, also known as the McMaster Review, raised more questions than it answered in terms of how UK cultural policy is likely to develop in the future. Although many of its intentions are laudable, the report fails to resolve the inherent problems associated with defining, measuring and judging cultural “excellence”, even though this forms the core of McMaster's argument about how policy should develop. This may have significant implications for cultural institutions in the future.

In addition, many of the report's recommendations may either be contradictory or impractical in the current policy climate – such as the desire for institutions to take more risks whilst simultaneously increasing visitor numbers and meeting other targets. As such, without a wider change in the Government's approach and a re-acknowledgement of culture's intrinsic value, “excellence” may just become the latest buzzword for practitioners, rather than the key principle upon which future decisions will be based.     

Designing policy: collaborative policy development within the context of the European capital of culture bid process

ABSTRACT

How do ideas become policies? What route do they take from inception to implementation and what criteria are used to evaluate one set of proposals against another? This paper examines the development of the Creative Work Fellowship policy proposal in Limerick, tracing the origins of the idea, itself a contended and negotiated object, from discussions between academics and policy-makers through to scoping, pitching and scaling the policy to its eventual users. This policy idea was designed during the Intelligence Unit (IU) commissioned by Limerick2020 as part of the city’s bid to become European Capital of Culture in 2020. The IU took the form of a policy think-tank, tasked with generating insights, ideas and policy proposals into the place of culture within Limerick city and region. The IU structure created a set of actors and an epistemic community capable of both generating and using ideas effectively, chiefly through two mechanisms. The first involved a robust critique and rebuilding process that every element of the policy was exposed to; the second involved feedback from interested parties at specific stages in the process. This created a series of “policy entrepreneurs” capable of taking a fully costed and modelled policy suggestion to government. The findings presented in the paper include an analysis of the collaborative nature of this policy development process, Based on this framework, we also consider the role of the European City of Culture bid process as catalyst for policy development in a regional context, and present findings on this subject.     

Crafting the local: the lived experience of craft production in the Northern Isles of Scotland

ABSTRACT

National creative and cultural industries policy agendas tend to focus on the economic impact of the sector often favouring scalable digital activities based in global clusters, which underpin notions of growth. There has, however, been a re-emergence of craft, which may not be scalable in the same way, into public debate, with benefits linked to educational, cultural and economic policy agendas. Accordingly, policymakers have begun to view craft as a stimulus to develop local and regional economies, skills and materials in relation to wider networks. Within this push towards craft-driven creative place making and economic growth, it has been argued that more sophisticated understandings of the “local” are needed that go beyond those which are inward and parochial. Based on AHRC-funded empirical research undertaken in the Northern Isles of Scotland with craft practitioners, this article attempts to provide evidence of the place-based nature of craft work highlighting both opportunities as well as constraints linked to contexts that are often referred to as remote and peripheral when contrasted with urban locations. We argue for future investigation into, what we term, fractal growth – growth and development that considers multiple dimensions – as being a valid and valuable outcome of creative practice, and which cannot be easily scaled.     

Cultural policy indicators: reflections on the role of official statisticians in the politics of data collection

Cultural policy indicators are being constructed in many countries today as a consequence of reforms in public governance aimed at increasing cost-effectiveness and general efficiency as well as transparency and accountability. Drawing upon a project of the Finnish Ministry of Education, the article discusses the responsibilities of official statisticians in regard to the collection and processing of data to be used as “evidence” of the outcomes of cultural policies. Official statisticians are bound by an ethical code that emphasises the objective and independent production of information on different aspects of the economy and society. Direct involvement with the construction of cultural policy indicators may threaten the integrity of official statisticians, because such work would require close collaboration with administrators and decision makers who have their own particular interests in the cultural field. Moreover, the system of cultural statistics, which was established internationally at the turn of the 1970s, has a history of providing justification for public cultural policies. The Finnish project, in which two officials from Statistics Finland functioned in the role of commissioned experts, was officially about societal effectiveness indicators but was extended to encompass arguments for cultural policy. The final report even went as far as to propose that cultural considerations could be mainstreamed through indices and evaluation schemes covering all policy sectors. The article shows how easily official statisticians are drawn into the politics of data collection in the field of culture even when precautions are in place. The article concludes that the code of ethics of official statisticians serves as an indispensable buffer against partiality, but, to put this ideal fully into action, cultural statisticians need to develop reflexive practices that combine an applied approach and critical discourse. Such practices are similar to those outlined recently by cultural policy researchers.     

Professional mobilities in the creative industries: The role of “place” for young people aspiring for a creative career

Within creative industries policy, two themes have been situated as central to the needs of the creative economy: the economic importance of place and the role of education in delivering a better-equipped workforce. However, these themes have rarely overlapped in either policy thinking or academic research, and so this article focuses on the relationship between place, education and professional aspirations for young people. Using the findings from qualitative interviews with media studies students within higher education (HE), this article analyses how the perceived attributes of some locations may provide industry credibility and the promise of enhanced professional mobility. It examines the tangible and symbolic value of place within young people's career development in the creative industries. The findings highlight how the links between place and education can influence the professional process, and how place shapes young people's perceptions of and opportunities for work in the creative industries. Finally, this research emphasises how current theories on creative industries policy and HE provision need to be extended to take greater account of the ways in which the attributes of localities can be used as a catalyst for individual professionalism amongst young people, and the ways in which certain places (mainly rural) may be disadvantaged in the current policy trajectory.     

Evaluating legacies: Research,evidence and the regional impact of the Cultural Olympiad

From the bidding stage onwards, the London 2012 Olympics has been framed by an explicitly instrumental agenda, with objectives including increasing participation in sport in the UK and economic and physical regeneration in host sites, through investment in the Olympic Park and its surrounding infrastructure. The bid also signalled the ambition that London 2012 should be the first Olympics to deliver legacy through a nation-wide cultural programme in the build up to and alongside the Games [Kennell, J. & MacLeod, N. (2008, November 6–8). A memetic framework for the conceptualisation and evaluation of the Cultural Olympiad of the 2012 Olympic and Paralympic Games. Paper presented at the 2nd Bi-annual International Tourism Studies Association conference in Shanghai, China. Retrieved from http://gala.gre.ac.uk/3951/], deliberately putting in place infrastructure for each English region and nation, shortly after the bid's success was announced. The ensuing national Cultural Olympiad, part funded by Legacy Trust UK, was evaluated through a series of research exercises which aimed to document the legacy and impact of the cultural programme. Through the case study of a regional programme in the North West of England, “We Play”, this article considers how evaluation research has been used locally to develop policy stories and legacy narratives which interpret and interact with the changing landscape of arts funding and cultural policy in the UK.     

How to understand Stuart Hall’s “identity” properly?

Some scholars specializing in racial issues attempt to explain ethnic “identity” and its awakening as the intrinsic logic that runs through Stuart Hall’s academic life. My paper disagrees with this explanation and finds three problems in it: first, it has not fully understood the applicable object of Hall’s politics of “identity,” thus it leads to the inappropriate employment of the theory; second, it does not fully recognize the involvement of Hall’s academic research, and exaggerates the effect of Hall's early experience on the development of his academic thoughts; third finally, there is a tendency to use essentialist reductionism in the attempt to find an essential Hall or the essence of Hall. I argue that one needs to comprehend three key words in order to understand the “guarantee-free” Hall, that is, “resistance,” “openness” and “articulation.” Therefore, if one wants to grasp Hall’s “identity,” one must go back to the social history and its evolving process where Hall existed.     

Regional creative industries policy-making under New Labour

This article analyses creative industries policy in the English regions under New Labour (1997–2010). It examines the ideas behind regional creative industries policies (RCIPs) and their implementation. Focusing on the activities of the English regional development agencies, the primary bodies responsible for the implementation of creative industries policy in the British regions, the article places regional cultural policy during the New Labour period within its broader political, social and economic contexts. It explains and evaluates New Labour's RCIPs, arguing that creative industries policy at the regional level changed over the course of New Labour's three terms of office, becoming increasingly economistic at the expense of a more social democratic vision of regional equality and democracy. We identify three issues that were problematic for New Labour's RCIP: a reliance on the idea of “clusters”, commercialisation and shifting regional governance.     

Re-examining public opinion preferences for migrant categorizations: “Refugees” are evaluated more negatively than “migrants” and “foreigners” related to participants’ direct,extended, and mass-mediated intergroup contact experiences

Although migrant categorizations (e.g. “migrants”, “refugees”) are often conflated in political and academic discourse, they may be ascribed to different people and inspire different preferences in public opinion. Previous research in Western Europe has identified more positive attitudes toward “refugees” than toward “migrants” due to the legitimate need for international protection of “real refugees” compared to the perceived illegitimate claims by “economic migrants”. However, little evidence suggests that the same preference also exists in Eastern European countries that have historically received smaller numbers of refugees and had fewer frequent experiences with migrants and foreigners compared to West European countries. Moreover, the term “refugee” was intensively recategorized as “bogus” and de-legitimized in East European political discourse. To provide new evidence, we conducted a pre-registered comparative survey-based study with a sample of young Slovak adults (N = 873) to compare evaluations of three commonly used migrant categorizations in Slovakia -- “refugees”, “migrants”, and “foreigners” -- on multiple attitudinal and behavioural measures. In addition, we also tested the intergroup contact hypothesis about the relationship between participants’ evaluations and their experiences of direct, extended, and mass-mediated contact with these target groups. We found that “refugees” invoked less favourable feelings, attitudes, trust, and greater social distance compared to “migrants” and “foreigners”. These evaluations related to the valence (and less to the quantity) of participants’ experience of intergroup contact. These results challenge previous findings about public opinion preferences for “refugees” over “migrants”, support the intergroup contact hypothesis, and make a case for a more contextualized research.     

Creative industries in “developing” countries: Questioning country classifications in the UNCTAD creative economy reports

The UNCTAD Creative Economy Reports (CERs) are arguably the most influential policy-oriented texts on the global scope and potential of the creative economy. They contain arguments for greater policy attention to the creative economy worldwide and statistical data to illustrate their claims. These reports argue that the creative economy is an area of growth, not only in “developed”, but also in “developing” economies. The central argument of this article is that the way the country classification used in the CERs increases the share of “developing countries” in global creative goods exports in contrast to The Organisation for Economic Co-operation and Development (OECD) and The United Nations Development Programme (UNDP) classifications. When singling out China, the share of these countries decreases even further. According to The United Nations Conference on Trade and Development (UNCTAD), in 2010, 41 “developed” countries account for 51.18 per cent and 158 “developing” countries for 48.03 per cent of the global creative economy with 17 economies in transition accounting for 0.79 per cent. This obfuscates reality and obstructs the creation of evidence-based policies relevant to the creative industries. The classification of developed and developing countries is redrawn in accordance with building on data on the export of creative goods, provided by UNCTADstat. This article proposes that a more correct, balanced, and disaggregated outlook on the classification of countries is needed because one single “developing country” (China) is the single biggest exporter of creative goods in the world (25.51 per cent in 2010) yet the 49 “least developed countries” account for merely 0.11 per cent of creative goods exports (in 2010) while they comprise 880 million people (or some 12 per cent of the world's population). In conclusion, it is argued that different kinds of developing countries need different approaches and policies. Reference is made to Burkina Faso to illustrate this point.     

National cultural indicators in New Zealand

New Zealand was one of the first countries in the world to report national cultural indicators – specifically choosing to use a conceptually based framework which was broadly underpinned by theories of culture, industry and political economy. One of the essential elements of this work was the incorporation of a Māori perspective in recognition of the Treaty of Waitangi and the importance of the indigenous Māori culture. Manatū Taonga Ministry for Culture and Heritage has primary central government responsibility for cultural policy and advice and the reporting of national cultural indicators. The term “culture” in this context broadly refers to Māori culture and the cultures of all New Zealanders, and to endeavours relating to arts, heritage, media, and sport and recreation. The Ministry is currently scoping a programme of research that aims to refine the indicators; relate indicators more clearly to the cultural policy role of government (and in turn their related cultural agencies); and more clearly articulate the relationship that cultural sector indicators have with those of other sectors. Cultural sector consultation to identify and clarify perspectives and reconfirm a common terminology (if not understanding) will be an essential and important part of this work. Better contextualising the national indicators will make them more meaningful and useful for reinforcing the importance and value of the cultural sector; monitoring the “health” and performance of the cultural sector over time; providing useful quality information; measuring the effectiveness of policy interventions and connecting across the cultural sector and to other sectors. This paper outlines the New Zealand context and the development and reporting of national indicators; reflects on the usefulness of reporting national indicators to date; and describes and discusses the intended direction of further work.     

Bursting paradigms: a colour wheel of practice-research

ABSTRACT

In this article, I question practice as a research paradigm by exploring its position in relation to non-positivist qualitative methodologies. Frayling’s [1994. Research in art and design. Royal College of Art Research Papers, 1(1), 1993/4] distinctions between research into, through, and as (for) practice are expanded to explore overlaps between these approaches. I argue for the need to understand the nuances of different epistemologies and ontologies that underpin diverse disciplinary approaches to practice-research. This is done through an analysis of a selection of Arts and Humanities Research Council (AHRC)-funded projects to find out how they are using and/or embedding practice in the research process. The resulting Colour Wheel of Practice-Research illustrates a spectrum of positions of practice in relation to research, suggesting existing research paradigms are bursting at the seams and that the “disciplinary matrix” of practice might offers other ways of knowing. The reason I have chosen to focus primarily on AHRC-funded projects is because it explicitly states its support of “practice-led research” and that it “remains dedicated to this area of research”. This article aims to add to knowledge of how and why practice-research is of continuing interest to research councils, universities, and those identifying as practice-based/led researchers.