Making creative industries policy in the real world: differing configurations of the culture-market-state nexus in the UK and South Korea

ABSTRACT

This paper compares creative (content) industries policies in the UK and South Korea, highlighting the coevality in their development. Seeing them as ‘industrial policies’, it focuses on how state intervention is justified and why a certain set of policy options have been chosen. The UK policy-makers prefer passive and decentralised roles of the state that addresses market failures via generic and horizontal policies. Meanwhile, Koreans have consistently believed in the strong, resourceful and ambitious state in developing centralised, sector-specific policies for cultural industries. While demonstrating two contrasting approaches to the nation state’s management of cultural turn in the economy, both cases seem to present a ‘paradox’. Despite its neoliberal undertone, the horizontal and fused approach taken by the UK’s creative industries policy engenders some space for ‘cultural’ policy. On the contrary, the non-liberal and state-driven content industries policy in Korea has shown a stronger tendency of cultural commodification.     

Introduction: film policy in a globalised cultural economy

This special issue on ‘Film Policy in a Globalised Cultural Economy’ is devoted to the changing economic and technological context in which filmmaking occurs, the policy responses that these changes have generated and their consequences for the pursuit of cultural objectives. The issue offers discussions of the general economic, technological and political shifts shaping the global film industry as well as case-studies examining the specific policies adopted by different states. While these indicate how governments have been obliged to respond to the economic and technological changes wrought by globalisation they also highlight the variations in approach to film policy and the continuation of tensions between economic and cultural, and public and private, objectives.     

Quoting television: a cross-national analysis of regulatory intervention in the independent television production industry in the UK and Spain

In order to understand the advent and consolidation of the independent television production industry, it is necessary to consider the essential role that quotas have played. This article offers a comparative empirically grounded analysis of the impact generated by a variety of quotas applied to independent production in the UK and Spain. First, it describes how quotas originating from the Television without Frontiers Directive are implemented in different ways. Second, through a sample of prime-time television in both countries, and in-depth interviews, the article analyses the strength of independent producers, their regional diversity and, in the Spanish case, the volume of investment in them by broadcasters. The results highlight the limitations of quotas and the need to intervene in different areas with alternative tools if the objectives originally pursued by the Directive for this sector are to be achieved.     

Reinventing the British film industry: the Group Production Plan and the National Lottery Franchise Scheme

This article is a comparative analysis of two analogous attempts to restructure the British film industry: the Group Production Plan of the early 1950s and the National Lottery Franchises of the late 1990s. The Group Production Plan brought together key industry figures such as Michael Balcon and John Grierson, who endured a fraught working relationship. The Plan failed, largely due to indifference from the major combines, Rank and the Associated British Picture Company (ABPC). Forty‐five years later, the Lottery Franchises were criticised for failing to produce enough films, although the example of Pathé Pictures suggests that expectations were too high and resources too low. The economic theory of path dependence problematises the policy drive to create vertically integrated companies. This article concludes that historical precedent plays an insufficient role in British film policy discourse and that academic research in cultural policy should aim to improve the dialogue between the past and the present.     

Cultural globalization and the dominance of the American film industry: cultural policies,national film industries,and transnational film

The global film market is a strategic site for examining the global influence of American media culture. Using a database compiled by the European Audiovisual Observatory, I show that the global film market consists of 34 countries that produce over 25 films per year. Thirty-two countries produce less than 26 films. The countries that produce over 25 films per year were categorized as Super Producers (four countries), Major Producers (seven countries), Medium Producers (11 countries), and Minor Producers (12 countries). Lists of top 10 films in these countries show that US films dominate, followed by local films. A discussion of national cultural policies shows that film policy contributes to the success of national film industries but does not enable them to challenge US dominance. Hollywood’s need for global box office receipts has led to changes in the content of Hollywood film toward deculturized, transnational films, a trend that is also evident in other countries.     

Girls on film: Affective politics and the creation of an intimate anti-trafficking public in Singapore through film screenings

The interstices between film and politics occupy a prominent place in recent scholarship in political geography and cognate disciplines, focusing on the ways film establishes relations between viewers and characters. Such processes often utilise affective referents to create ‘intimate publics’. This paper focuses on the relations human trafficking films establish between ‘victims’, viewers and anti-trafficking stakeholders in creating an intimate anti-trafficking public in Singapore. I argue that the third world girl is rendered a moral object of sympathy both through trafficking film and performances by anti-trafficking stakeholders in the cinema. However, in comparison to both film viewers and anti-trafficking stakeholders she is cast as muted and lacking agency. Intimate anti-trafficking publics can emerge through the harnessing of negative emotions that, in this case, privilege the plight- but not the agency – of the female child trafficking victim and are inculcated through film storylines and cinematic performances.     

The Role of Universities in Regional Development: Conceptual Models and Policy Institutions in the UK,Sweden and Austria

The literature on universities’ contributions to regional development is broad and diverse. A precise understanding of how regions may draw advantages from various university activities and the role of public policy institutions in promoting such activities is still missing. The aim of this paper is to provide a framework for analysing universities’ contributions to regional economic and societal development in differing national contexts and the policy institutions that underpin them. To do this, we review four conceptual models: the entrepreneurial university model, the regional innovation system (RIS) model, the mode 2 university model and the engaged university model. The paper demonstrates that these four models emphasize very different activities and outputs by which universities are seen to benefit regional economy and society. It is also shown that these models differ markedly with respect to the policy implications and practice. Analysing some of the public policy imperatives and incentives in the UK, Austria and Sweden, the paper highlights that in the UK, policies encourage all four university models. In contrast, in Sweden and Austria, policy institutions tend to privilege the RIS university model, whilst at the same time, there is some evidence for increasing support of the entrepreneurial university model.     

Creating twenty-first century Korean bodies: public movement education practice,cultural policy and therapeutic ethos

This article focuses on the public movement education practices of a group of middle-class, Korean dance instructors at the Korea Laban Movement Institute (KLMI), a recently established civil institution in Seoul, South Korea. The KLMI classes promote self-directed and well-rounded Korean bodies through student-centered and egalitarian movement instruction. In recent years, these classes received public funds from the culture and arts foundations supported by the state’s cultural policies, as well as attention from Korean public media. This research introduces the public movement education practices that have aligned well with the state’s early twenty-first century cultural policies by making culture and arts education more accessible to the average Korean. In addition, the study shows the broader impact of KLMI’s public movement education practices, which have merged into the political and social landscapes of contemporary South Korea.     

Firing up craft capital: the renaissance of craft and craft policy in the United Kingdom

Crafts have recently been experiencing a renaissance. This revitalization sees craft increasingly recognised as a growing industrial sector with benefits linked to educational, cultural and economic development policy agendas. This paper engages with policy debates around the place of craft in the United Kingdom from 2010. Drawing on craft sector perspectives and UK government policy initiatives it situates the disciplines and practices of craft within their institutional support networks, organizational contexts and draws attention to the role of individuals in driving agendas. The paper focuses on the national facing crafts development organizations, the UK Crafts Council and the UK Heritage Crafts Association, alongside recent policy discussion emerging from the UK Department for Business, Innovation and Skills. Recognizing that the legacies of past practice often inform contemporary agendas, the paper explores how the advocacy of craft in the recent past has shaped the place and positioning of craft in contemporary UK politics.     

The Changing Circumpolar World for Canada,Quebec, Nunavik,and the Arctic Council

ABSTRACT

Arctic Quebec is one piece of the puzzle comprising the Circumpolar World. In fact, almost one-third of Quebec’s territory lies within the Canadian Arctic. This geographic fact places Nunavik and its people squarely in economic and political affairs swirling around the Circumpolar World, but so far their political involvement has been minimal. This article explores three main themes: the Arctic nature of Nunavik; Nunavik’s place in the political corridors of the Arctic Council, Canada, and the Circumpolar World; and global warming as a link between these topics, because of its impact on the Arctic environment and peoples and because of the growing interest of non-Arctic nations in the Arctic.     

The Gulf Cooperation Council states: Crystallization of the regional cooperation and alliances amid dwindling resources

The Gulf Cooperation Council (GCC) states can be divided into two main camps in terms of hydrocarbon endowment per capita which can partially account for differences in policy directions. Kuwait, Qatar, and the UAE (the rich triplet) have small populations while having large hydrocarbon (oil and natural gas) endowments compared to Bahrain, Oman, and Saudi Arabia. Kuwait, Qatar, and the UAE have been effectively using their excess wealth in the form of investment for domestic economic diversification and overseas investments through their sovereign wealth funds (SWFs). Therefore, the rich triplet perceives the upcoming threat of decarbonization of the world's energy system lighter than the remaining members of the GCC in view of their prosperity. The expected decrease in oil demand and revenue within the next decade will put further strain on the relationship between these states.     

Policy development and engagement: perspectives and insights from key stakeholders involved in the creative industries in north Queensland,Australia

Like many western nations, the Australian government invests significant resources in creative industries at federal, state and local levels. While the majority of investment exists in the southern part of Australia, the current federal government has drawn attention to the need to develop the vast northern area of the country. North Queensland is the most populated area of northern Australia, hence key to this broader vision for the country. This case study therefore presents findings from interviews with key stakeholders involved in the development and/or promotion of cultural policy in north Queensland, including participants working at national, state and local levels. The findings are significant and point to four issues of ongoing relevance: the impact of policy and associated engagement issues, reductions in government funding, the fragmented nature of the creative industries, and the particular challenges facing north Queensland in terms of the northern Australia vision.     

New public management and welfare-to-work in Australia: Comparing the reform agendas of the ALP and the Coalition

Since the 1990s, the adoption of new public management (NPM) as a management philosophy has translated into multiple waves of reform in the employment services sector in Australia, namely Working Nation (1994–96), Job Network (JN: 1996–2009) and Job Services Australia (JSA: 2009–present). Each wave has sought to improve the preceding policy. In this article, we examine changes implemented during the Rudd/Gillard Labor governments. Using government policy documents and survey data from frontline employment services staff, we compare JSA to JN against five benchmarks. Our data indicate that JSA has generated modest improvement. JSA is also a system with less emphasis on strong forms of sanctioning. Our combined data suggest that policy actors operating under NPM conditions are indeed able to influence specific aspects of frontline practice, but they must spend great effort to do so and must accept new imperfections as a consequence.

1990年代以来,新型公共管理被作为一种管理哲学而被接受。这导致了就业服务部门的数次改革浪潮,即工作国（1994—96）、工作网（1996—2009）、澳大利亚工作服务（2009至今）。每波浪潮都力图改良此前的政策。本文考察了陆克文/吉拉德工党执政时期的变革。作者根据政府的政策文件、一线就业服务机构员工的调查数据等等,在五个基准点上将澳大利亚工作服务与工作网做了对比。根据我们的资料,澳大利亚工作服务这个系统带来的改进最小,也不大注重强有力的制裁。我们认为,实施新型公共管理的政策制定方的确能影响一线实践的某些方面,但他们还要花大力气,还要接受往后新的不圆满。     

Paradigms of participation in the National Council for Culture and Arts: challenges on representation,recognition, access to creation and reception in post-dictatorship Chilean public cultural policy

The National Council for Culture and Arts (NCCA) is the public agency responsible for the implementation of cultural policies in Chile. It was created in 2003 as part of a group of public organisms designed to promote democracy in post-dictatorship Chile, and its objectives include the encouragement of citizen participation in the national culture. This paper aims to call into question the scope and limits of citizen participation in the Chilean cultural field, through a systematisation of paradigms implicitly developed by the NCCA. Those paradigms include participation on the political level, the creation of symbols, recognition of cultural manifestations and access to reception and symbolic appropriation. It identifies challenges of these paradigms regarding representation, recognition, access to creation and reception of cultural manifestations.     

Science as culture and leisure: cultural policy,industry and scientific culture in the Canadian context

Government ministries of industry have long been promoters, co‐producers and even sometimes producers of cultural policy – from local and regional development strategies to initiatives that fund cultural organizations to support emerging fields such as the technological arts. This article explores the relationship between cultural policy‐making, science museums and industry ministries in Canada. More specifically, this article investigates the emergence and institutionalization of scientific culture policy as a result of advocacy by science centres in the 1980s. Beyond the delineation of scientific culture as a field and of the contribution of industry ministries to cultural policy, this article highlights the entrepreneurial strategies of cultural organizations and their impact on policy and facilities, thus suggesting that cultural organizations are not just passive instruments of social regulation and reform.     

Geographic film as public research: re-visualizing/vitalizing a terraced landscape in the Italian Alps (Piccola terra/Small land, 2012)

This article describes an experience of geographic filmmaking carried out within a long-term research process (2000–2012) involving the terraced landscape of the Brenta Valley in the Italian Alps. The documentary Piccola terra [Small land] (2012) was co-produced by geographers and professional directors. Engaging in the recent debate on filmic geographies, the aim of this article is to discuss and show what makes a film ‘geographic’. The geographer authored a filmic interpretation of landscape which is spatially and temporally complex, open and mobile, anchored to material features and to personal stories and socio-economic contexts. Produced to support a campaign for the adoption of abandoned terraces by ‘new farmers’, the documentary Piccola terra serves as a means to engage society and produce landscape change. Geographic filmmaking as an action-, public- and social-oriented activity is discussed with reference to the so-called ‘impact agenda’. We propose a style of active engagement through filmmaking which is workable, rather than critical. In order to avoid purely auto-reflective, auto-referential academic speculation on doing filmic and public geographies, this paper, which ideally is read along with viewing of the documentary, materially enters the researched/filmed landscape, developing into a supplementary tool for the international dissemination of Piccola terra.     

Making screen production work at the margins: path-dependent development in Brisbane and the Gold Coast

While screen production is notoriously centralised, it is still found outside major media cities where the central problem for actors in these subordinate media cities is how to create sustainable levels of screen production capabilities in circumstances of increasing centralisation and globalisation in media production and its design. This article discusses how the screen production sectors of two subordinate media cities, Brisbane and the Gold Coast, are organised. Each city represents a different pathway for the sustainability of a media sector. The Gold Coast is a production location for globally and nationally dispersed high-budget feature film and TV drama production; while Brisbane is mostly a ‘national production’ location for domestically oriented news, documentary, infotainment and sports programming with a focus on lower budgeted feature filmmaking and occasionally, television drama. These different city pathways are the product of the creative resources and infrastructure evident in each city.     

Co-evolution of institutions,culture and industrial organization in the film industry: the case of Shanghai in China

Research about the Chinese film industry is far behind the actual development of practice, especially considering its evolution and main influential factors. Furthermore, existing research on the film industry in economic geography is mostly conducted from the perspective of cluster theory, with lesser attention to institutions or culture. In this paper, the theory of co-evolution is used to tackle these two gaps. The role of institutions, culture and industrial organization as three fundamental elements of co-evolution is pointed out and discussed in the theoretical section. The phenomena of co-evolution in the Shanghai film industry as important examples of the Chinese film industry are analysed in the empirical part. We phase the development process in four periods and differentiate identified effects of co-evolution between institutions, culture and industrial organization based on the specific setting in each particular period.     

Public intellectuals as policy makers: the democratization of culture and Sean O’Faoláin’s Arts Council, 1956–1959

ABSTRACT

This article examines the brief tenure of the writer Sean O’Faoláin as Director of the Arts Council of Ireland. The article notes the generational similarities and shared outlook between O’Faoláin and André Malraux, the Minister of Culture for France from 1959 to 1969. However, O’Faoláin’s tenure in office was shorter, less successful, and marked by a bitter dispute with the administration and artists of the Royal Hibernian Academy. This dispute serves as a useful case study for examining competing conceptions of national culture, the purpose of cultural policy, and the role of the cultural elite as arbiters of taste.     

The BBC and decentralisation: the pilgrimage to Manchester

This research critically analyses the decentralisation of the BBC’s Department of Religion and Ethics, from its base in London to the office of BBC Manchester in 1994. It examines the rationale behind the BBC’s decision to move this production unit, and analyses the long-term impact of this policy on both the logistics and programme-making culture of the unit. Using interviews with staff working within the department at the time of the move, this research demonstrates how policy decisions such as this are negotiated by professionals within the Corporation and the conflicts which arise around efficiency and equality. The case of the Department of Religion and Ethics also provides important lessons for the future decentralisation of BBC departments to Salford Quays which is due to be implemented in 2011.