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.     

Whose cultural value? Representation,power and creative industries

ABSTRACT

The debate around ‘cultural value’ has become increasingly central to policy debates on arts and creative industries policy over the past ten years and has mostly focused on the articulation and measurement of ‘economic value’, at the expense of other forms of value—cultural, social, aesthetic. This paper’s goal is to counter this prevalent over-simplification by focusing on the mechanisms through which ‘value’ is either allocated or denied to cultural forms and practices by certain groups in particular social contexts. We know that different social groups enjoy different access to the power to bestow value and legitimise aesthetic and cultural practices; yet, questions of power, of symbolic violence and misrecognition rarely have any prominence in cultural policy discourse. This article thus makes a distinctive contribution to creative industry scholarship by tackling this neglected question head on: it calls for a commitment to addressing cultural policy’s blind spot over power and misrecognition, and for what McGuigan (2006: 138) refers to as ‘critique in the public interest’. To achieve this, the article discusses findings of an AHRC-funded project that considered questions of cultural value, power, media representation and misrecognition in relation to a participatory arts project involving the Gypsy and Traveller community in Lincolnshire, England.     

Four models of the creative industries

What is the dynamic value of the creative industries from the economic perspective? This paper seeks to answer this question by proposing four models of the relationship between the creative industries and the whole economy, then examining the evidence for each. We find that growth models fit the data well, but not everywhere. We discuss the methodological and empirical basis for this finding and its implications for economic and cultural policy.     

Creative class politics: unions and the creative economy

This article examines how cultural workers participate in the construction and contestation of the creative economy at the policy level. An analysis of the role unions play in the film and television industry association FilmOntario demonstrates the paradox that the creative economy, as an economic development strategy, presents to the cultural workforce. FilmOntario has succeeded in attracting a high volume of work to the province through film and television tax credit advocacy. Although FilmOntario’s success in policy advocacy is deeply tied to union resources, the unions’ decision to work within creative economy discourses, and in association with employers, has prevented core issues related to the quality of work from being articulated as a function of policy design. The argument is that the discursive and associational choices unions, as the collective voice of the (creative) working class, make as policy actors have a significant impact on the degree to which cultural labour problems are understood as cultural policy problems.     

Emerging challenges of an urban creative economy: reflections on the governance of creative clusters in Taipei City

ABSTRACT

Retaining the global mobile creative class has been considered a crucial strategy for driving creative economic development in inner cities. However, implementing the global creative city strategy overemphasizes the significance of amenity-based creative economic landscapes over institutional collaborations in contributing to the situated governance dynamics of creative clusters. Drawing on insights from an evolutionary perspective, this paper scrutinizes the extent to which creative city strategies foster the situated development of creative clusters based on a case study of Taipei. The paper argues that developing the urban creative economy requires a context-specific understanding of the urbanization process, and should involve an institutional collaboration to articulate the socio-spatial co-evolution between the diversified dynamics of creative clusters and urban form. This paper advocates reflexive thinking on neoliberal city strategies to develop a conjunctive, diverse and substantial creative policy to support alternative paths of creative city development.     

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.     

The international transfer of creative industries as a policy idea

This article examines the transfer of creative industries as a policy idea to Lithuania. Tracing the stages of the transfer and analysing its consequences in the local cultural policy field, this paper argues for the importance of studying cultural policy process. The findings reveal that the process of the international transfer of creative industries mattered, because it generated wider transformations in cultural policy field by having ambiguous effects on local power relations. The policy idea of creative industries opened the cultural policy field to new actors. As a result, competition for scarce state funding increased, but cultural organisations gained access to the European Union structural funds. In all, creative industries as a policy idea significantly transformed Lithuanian state cultural policy, in that it led to a reassessment of both the practices and identities of cultural organisations.     

The UNESCO Convention on the Diversity of Cultural Expressions as a coordination framework to promote regulatory coherence in the creative economy

The present article aims to inquire about business convergence in creative industries from the perspective of cultural diversity. It is based on the premise that the recognition of the creative and innovative component of the so-called ‘creative industries’ or the ‘creative economy’ confirms the need for non-economic factors and particularly cultural concerns to be taken into account in regulatory efforts addressing those industries. It examines the way new technologies and business convergence may affect the ‘trade and culture debate’ vis-à-vis the World Trade Organization (WTO), and how the 2005 UNESCO Convention on the Protection and Promotion of the Diversity of Cultural Expressions (CDCE) may respond in a relevant manner to challenges brought therefrom. Despite its weakly binding language, the CDCE contains principles, objectives and rules that set a comprehensive framework for policy ‘related to the protection and promotion of the diversity of cultural expressions’ at the national, regional and international levels. A fundamental piece in such an approach is the explicit integration of cultural concerns into the concept of sustainable development. This article argues that the material and economic perspective adopted in the CDCE, based on the production and consumption of cultural goods and services, remains relevant and pertinent in the creative economy, despite business convergence. By prioritizing policy and regulatory coordination, it maintains that the main elements enshrined in the CDCE should be employed to contribute to greater coherence in view of the objective of promoting cultural diversity, including vis-à-vis the WTO and other international organizations, and puts forward potential paths for such coordination.     

Choosing What to Remember in Neoliberal Singapore: The Singapore Story,State Censorship and State-Sponsored Nostalgia

This article interrogates the persistence of heavy-handed censorship of political films in Singapore at a time of cultural liberalisation when the state has generally shown greater tolerance for alternative political expression in theatre, the literary arts, academia and public events. Part of this has to do with the focus of these films on political dissidents and their greater capacity to present a fundamental challenge to The Singapore Story, which is the regime-legitimising official account of Singapore’s history. It also has to do with the power and outreach of relatively low-budget independent films and the documentary genre in particular to evoke alternative histories vividly, give voice to the silenced, and channel these voices digitally into the collective cinematic and social media experience of the present. With the jubilee celebrations of 2015, the ruling party has been working hard to regain hegemony after experiencing its worst electoral losses in the 2011 general elections. Its main approach for achieving this has been to sponsor widespread national nostalgia coupled with highly selective censorship of political films that challenge the dominant official discourse in ways that can erode the government’s electoral dominance and political authority.     

Knowledge bases and regional development: collaborations between higher education and cultural creative industries

This paper builds on the assumption that cooperation between higher education institutions (HEIs) and creative and cultural industries (CCIs) stimulates innovation and economic growth at the regional level. It further assumes that HEIs and CCIs hold different perspectives on their intention to cooperate with external actors and, thus, there is a need for joint arenas to develop and integrate knowledge and practices among stakeholders across academia and industry. With this rationale in mind, the paper’s main objective is to discuss how universities’ roles in the establishment and development of locally embedded CCIs change or evolve over time. Taking a process economics perspective and building on a case study from the South of Norway, two questions are addressed: (1) What are the barriers – structural and cognitive-cultural – hindering cooperation between HEIs and CCIs in Southern Norway? and (2) How can long-term win-win cooperative arrangements between HEIs and CCIs be enhanced? Different knowledge bases, combined with lack of knowledge and understanding of the other sector’s expertise or knowledge content, and thus the lack of common language, were found to be the biggest barriers that must be overcome to stimulate strategic cooperation between HEIs and CCIs in Southern Norway. The findings support the need for a diverse and flexible policy where target initiatives are adjusted to CCIs’ needs and academic departments’ fields of knowledge to decrease barriers to cooperation, with the ultimate aim of moving from a situation of ‘lock-in’ towards the creation of new innovative and valuable relationships.     

Mapping the arts: industry concentrations,distribution, and change in the US, 1980–2010

This paper studies arts industries in all 366 US metropolitan statistical areas between 1980 and 2010. Our analysis provides evidence that the arts are an important component of many regional economies, but also highlights their volatility. After radical growth and diffusion between 1980 and 2000, in the last decade, the arts industries are defined more by shrinkage and reconcentration in fewer metropolitan areas. Further, we find that the vast majority of metros have strengths in particular sets of arts industries. As we discuss in the conclusion, these conditions present challenges and opportunities for urban cultural policy that goes beyond the current focus on the arts as consumption amenities.     

Exploring the intellectual structure of creative economy research and local economic development: a co-citation analysis

The aim of the present research is to investigate the intellectual structure of creative economy research (CER) with a bibliometric analysis based on co-citation. Firstly, we try to reconstruct the evolution of academic research on creative economy with particular attention to the themes of regional and local economic development. Secondly, we investigate the community of contributions/actors that contributed to its generation throughout social network analysis. We analyse publications collected from ISI Web of Science, which includes all academic works starting from the seminal contribution of Department of Culture Media and Sport in 1998. Through the analysis of 941 publications produced over 16 years, we investigate the evolution of CER. Then we apply a relational analysis exploring co-citations of ‘disseminators’ and founders’ work’ of CER. Results underline that creative economy may be considered as a successful multidisciplinary paradigm born and developed in English-speaking countries, developed even on a global level, and still in a developmental phase. The internal structure of research appears fragmented in many sub-communities concentrated around some key concepts. Whereas creative class and creative city contribute to the foundation of the field, cultural and creative industries are the most important and recent topic.     

In search of a Mediterranean creativity. Cultural and creative industries in Italy,Spain and Turkey

The Mediterranean region has been increasingly receiving attention in recent years. This is due to the heterogeneity of the countries composing it, which raises several problems in business collaborations, but also unfolds several cross-national economic opportunities among Mediterranean countries. The analysis of cultural and creative industries can be useful to show that this area has many similarities, making intercultural exchange and cross-national economic development possible. This research starts from the comparison of three main Mediterranean countries situated both in Europe and outside, Italy, Spain and Turkey, and aims at highlighting the most striking similarities and differences of their features. The creativity specialization found in this region is alike, which allows us to begin to discuss the idea of a Mediterranean creativity.     

Exploring creative class mobility: Hong Kong creative workers in Shanghai and Beijing

In 2008 a controversial essay was published in Hong Kong drawing attention to the increasing number of local creative workers who have allegedly responded to the limitations the city had to wrestle with and the opportunities brought forward by the “Rise of China” – they moved northwards. Taking cues from the mainland China–Hong Kong dynamics, this inquiry zooms in on 12 Hong Kong creative workers who have relocated to Shanghai and Beijing during the last 20 years. It supplements existing scholarship on creative class mobility, which is largely configured by concerns with work situations and place attractiveness and is situated in cities in Europe, the United States, and Australia. It does so in two ways. On the one hand, the empirical evidence delivered by this inquiry aligns with studies pointing to the limitation of Florida’s creative class thesis and wonders if “cool places” are indeed attracting talents. On the other hand, it is inadequate to posit that creative workers move only because of place or only because of work. It builds on the complexities of their subjective accounts to propose to include four dimensions – the geopolitical, the intersectional, the contingent, and the circuitous – to future explorations on creative class mobility.     

Screening Singapore: The Cinematic Landscape of Eric Khoo's Be With Me

This paper investigates the mutually constitutive relationship between the context of film production and the composition and content of images produced. Singapore film director Eric Khoo is central to our investigation, and his 2005 film Be With Me is a key example of how Singapore's ongoing urban redevelopment to become a world city reflexively shapes the style and appearance of the city‐state projected in the film. Singapore's history as a developmental state, its pervasive influence on the public and private spaces of its citizens, and recent state‐led initiatives to nurture the arts and media sectors all make it an ideal site to examine the relations between the cinema and space. Be With Me also lends itself to spatial analysis as its mise‐en‐scène is a geography of the life course: particular parts of the city are ‘cast’ as spaces of youth, middle, and old age. We elaborate how the landscapes deployed in the film are simultaneously constituted through state policies, mise‐en‐scène, and gender/age/class considerations. In so doing we show how Khoo's vision of the city‐state has altered since his emergence as a film director in the 1990s: from an oppressed site of hyper‐modernity to a more ambivalent ‘globalised’ built environment in which marginalised or liminal urban spaces for sensuous life and hope for human connection can be experienced.     

The governance of national cultural organisations: comparative study of performance contracts with the main cultural organisations in England,France and Catalonia (Spain)

In some European countries, performance contracts have become an instrument for the governance and control of major cultural organisations by the public administration. The negotiation and signing of a performance contract are mainly aimed at developing the goals of cultural policies by means of large organisations in order to achieve the traditional objectives of cultural democratisation and other instrumental objectives (economic development, urban regeneration or social inclusion). Nevertheless, the development level of performance contracts varies when we compare England, France and Catalonia (Spain). Each particular level of development is conditioned by the overall administrative and institutional context and the development level of results-based management and an accountability culture. The level of public funding and the degree of autonomy of management within each organisation can also explain why in some cases governance has been contractualised whereas in other cases either progress is more rhetorical than real.     

Beyond the predicted: expanding our understanding of creative agency in international development through practice and policy

This article analyses the framing of creative agency within the field of international development before going on to challenge some of the limitations of that framing. The critique is informed by research undertaken with artist-led initiatives in Central America that reveals the political implications of that framing and, at the same time, points to alternative forms of creative agency at work. The paper highlights the approaches of a number of international development donors whose policies appear able to support more expansive and emancipatory conceptions of agency for artists and artist-led initiatives, and makes a claim for the political importance of such policy platforms, despite some on-going limitations.     

The acculturation experiences of Asian immigrants in Singapore

This study aims to understand the acculturation experiences of Asian immigrants to Singapore. A qualitative exploratory study using focus group discussions was conducted among 40 permanent residents and new citizens. Each of the seven focus groups had an average of six participants and lasted 1–2 hours. Immigrants described Singaporean culture as a blended culture featuring multiracialism. Their acculturation strategies were influenced by the way they were perceived and treated by the host society, based on their country of origin and whether they had been members of a minority community there. Although the respondents valued multiracialism, they also faced challenges in maintaining interethnic contacts. Implications for further enhancing existing acculturation models are discussed.     

Independent creative subcultures and why they matter

Independent creative subcultures, in their various hybrids of music, theatre, art, and new and old media, are the primordial soup of cultural evolution. They have the capacity for a highly definitive influence on their participants – catalysing the transition from consumer to producer for instance – often conferring much broader cultural and social benefit. Creative subcultures make continuing, well-documented, contributions to established city cultures for relatively low outlay. Indie creative activities in particular do not make much money and they do not cost much to set-up. They tend to cluster in areas characterised by low rents and non-residential uses such as retail and industrial areas, but as third wave gentrification reaches into the dark pockets of many cities, cheap rental properties are becoming scarce. This article uses time-series maps of inner Melbourne to show a pattern of tighter and tighter clustering of indie cultural activities as alternative spaces disappear. It looks at where they are going and why, considers the implications of this pattern for the ‘creative city’, and suggests some policy initiatives to help maintain and nurture independent creative scenes. As Melbourne’s live music scene is particularly vulnerable to displacement from increasingly dense and contested inner-urban space, the article focuses on interventions relating to music venues.     

Soft power,global governance of cultural industries and rising powers: the case of China

This article addresses the importance of cultural industries for the strengthening of the soft power of the rising powers and it seeks to understand how the cultural industries allow rising powers to shape the structures of their international environment. More specifically, studying the cases of People’s Republic of China and of the movie industry, my article focuses on the current evolution of the relationship between the Chinese authorities and the film industry, as well as on the development of the domestic film market. I further aim to draw up an inventory of China’s role within the global governance of cultural industries. Finally, I aim to highlight the global cultural competition that China faces, emphasizing the practices of the US administration and Hollywood. I argue that even if China is the current centre of gravity within the world economy, it still has a long way to go in order to shape the distribution of resources within the global governance of cultural industries and to play a crucial role in the international battle of cultural symbols.