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.     

South Africa’s trade in cultural goods and services with a focus on cultural trade with BRICS partners

ABSTRACT

As the potential for cultural and creative industries to drive growth and job creation is increasingly recognised, developing countries like South Africa are examining their cultural goods and services trade in a new light. This article investigates the pattern of South Africa’s cultural trade, with a focus on the strategically important BRICS trading bloc. Results show that, like many small, open developing countries, South Africa has a significant cultural goods trade imbalance, especially with China and India. While cultural trade policy is still somewhat fragmented, there are indications that where policies have been put in place, such as in the crafts and audio-visual sectors, progress in reducing significant deficits has been made. At the same time, the pattern of CCI trade preferences currently favours SADC, the EU and EFTA over BRICS partners. Finally, South Africa performs well in a number of services sectors for which cultural trade is important.     

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.     

Creativity in the ‘Torrid’ zone: policy,creative industries and the vision for Northern Australia

Creative industries are recognised as a key driver of economic growth in both developed and developing nations. In addition to recognising the importance of creative industries, the Australian government has recently renewed a focus on the vast northern tropical area of this island nation as key to future economic and population growth, via the release of a white paper focussed on development options for the north. However, the white paper contains virtually no references to creative industries. In addition, Australia’s most recent national cultural policy, Creative Australia, has after only a few years slipped into obscurity and despite major resources being invested towards its development. Drawing on the almost 100 years of policy documentation relevant to Northern Australia, this paper highlights the limited attention paid to arts, culture and creative industries, and considers this relative policy vacuum in the context of global developments in creative industries.     

Politics of the ‘creative industries’ discourse and its variants

The existing academic debate on creative industries can be summarised as ‘Trojan horse or Rorschach blot’: creative industries working as a neoliberal discourse or producing different effects depending on local context. Arguing that these are two sides of the same coin, this article looks closely at the discourse’s depoliticising and encompassing forces and their interplay on the discourse’s intersection to the broader new economy narrative. The article’s focus is South Korean variants of creative industries discourse. First, the country’s ‘content industries’ discourse served as a Trojan horse for the depoliticising narrative of knowledge economy while boosting the cultural sector discursively and financially. Second, ‘creative economy’ has very recently emerged as the current conservative government’s master economic narrative. This discourse allows the government’s neoliberal economic policies to be further justified while making cultural policy unable to persuasively claim that creativity belongs in the culture’s domain.     

SOVEREIGNTY AND SOFTWARE

This article will critically appraise two approaches to cultural policy. The first focuses upon the need for a national cultural policy in order to establish a national “common culture” among its citizens, through measures to promote the arts and popular media sectors, and set limits to the flow of imported materials into the nation. This is what has been termed the “sovereignty” model, and has historically been the driver of cultural policy debates. The second approach, which is called the “software” approach, aims to create cultural infrastructure and other environmental factors to promote a creative economy, whether at local, regional, national or supra‐national levels. It questions the historical divides between “culture” and “industry”, and between “creativity” and “innovation”, and is focused upon the development of future ideas and creative concepts. It draws upon the very different conditions associated with the development of software to those of established arts and media sectors, and aims to extend the “software” model more widely into cultural and creative industries policy.     

‘Innovation is a dirty word’: contesting innovation in the creative industries

Innovation is a term that is used and defined in many different ways. This holds for innovation in general, but particularly for innovation in the creative industries. In cultural policy and in academic literature, the creative industries are often addressed in the relation to their innovative capacities, yet a shared conceptualisation of innovation in this sector is lacking. This paper seeks to develop a conceptualisation of innovation in the creative industries based on 43 interviews with creative workers about their views and practices. Results indicate that creative workers articulate numerous views on innovation, with three main approaches: innovation as something completely new, innovation as a contribution to society and innovation as a continuous recombination of new and existing elements, with the latter being most prevalent in the creative industries and considered a central (by-product of the) process of creative production that is highly contextual to specific localities and fields.     

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 neo-developmental cultural industries policy of Korea: rationales and implications of an eclectic policy

ABSTRACT

This article undertakes an explanatory case study of the South Korean cultural industries policy shift instituted under the Kim Dae-Jung and Roh Moo-Hyun governments (1998–2008). This shift can be well positioned within the broader context of the creative turn in national cultural policy around the world, which was initiated by the British New Labour governments (1997–2010). Despite the similarities in the driving discourses and policy methods, the Korean policy shift was significantly distinguished from its British counterpart because of the differing pace and trajectories of industrialisation in the two countries. Adopting the concept of the East Asian developmental state as an entry point, this article explores how and why South Korea went through a cultural industries policy shift in the period following the 1997–98 Asian financial crisis and, additionally, examines what kinds of changes the policy shift brought about. Understanding the rationales and implications of this neo-developmental transformation can provide a unique opportunity to re-think the fashionable creative industries policies among various nations.     

Youthful Creativity in Regional Australia: Panacea for Unemployment and Out‐Migration?

This paper addresses the theme of youth out‐migration from rural Australia, in the context of recent policy discussions about creativity and its role in regional development. Ethnographic fieldwork in one rural location – the New South Wales Far North Coast – is drawn upon to highlight how creative industries are being cast as a potential way of promoting cultural activities and jobs for young people, and in turn, how they might be imagined as a means to mitigate youth out‐migration. Yet, creative industries have contradictory employment and social outcomes. Creative industries are likely to generate higher rates of youth participation in economic activities than public data reveal. However, strategies for future job growth should also consider the limitations and instabilities of creative industry employment. Second, and more broadly, the paper discusses those socio‐cultural dimensions of nascent creative industries that may have a more substantial impact when conceived as part of strategies to stem youth exodus from rural areas. Creative activities may contribute to rural development in indirect ways, especially if linked to policy goals of increased tolerance of youth activities, better provision of cultural services, and improved well‐being for young people. While formal job‐creation may be limited, creative industries could mitigate some of the impacts of youth migration to cities by enriching regional social life and mediating perceptions of the advantages and drawbacks of rural versus urban life. This kind of policy imagination requires a shift in attitudes towards young people and a more genuine commitment to encourage young people to feel that they belong in non‐metropolitan areas.     

From Coombs to Crean: popular music and cultural policy in Australia

The many bodies administering Australian arts activity were incorporated within the Australia Council, established in 1973 by the Whitlam Labor Government to oversee Commonwealth arts policy under the direction of H.C. ‘Nugget’ Coombs. This article takes the establishment of the Australia Council as a starting point in tracing changing attitudes towards the practices and funding of popular music in Australia and accompanying policy discourses. This includes consideration of how funding models reinforce understandings of ‘high’ and ‘low’ art forms, the ‘cultural’/‘creative’ industries debates, and their effects upon local popular music policy. This article discusses the history of local music content debates as a central instrument of popular music policy and examines the implications for cultural nationalism in light of a recent series of media and cultural reports into industries and funding bodies. In documenting a broad shift from cultural to industrial policy narratives, the article examines a central question: What does the ‘national’ now mean in contemporary music and the rapid evolution of digital media technologies?     

Modelling the cultural industries

Alternative definitions of the cultural industries lead to the construction of different models of the cultural production sector of the economy and hence to a different array of specific industries which are contained within the sector. In turn this implies not just differing estimates of the contribution of the cultural industries to output and employment in the economy but also significant differences in the way economic analysis can be applied to the cultural sector as a whole. This paper begins by discussing the way in which an economic approach to interpreting the scope of the creative and cultural industries can lead to a reasonable basis for defining them. It then goes on to examine the content of six distinct models of these industries, asking the question: is it possible to find a common core group of industries on which all of the models agree? The paper then considers the implications of the models for economic analysis of the cultural sector, and finishes with some conclusions for cultural policy.     

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.     

FROM VALUE CHAIN TO VALUE CREATING ECOLOGY

The metaphor of a “value creating ecology” is developed to describe the operation of the creative industries. This encapsulates three important trends, namely the shift from consumers to co‐creators of value; the shift from thinking about product value to thinking about network value; and the shift from thinking about cooperation or competition to thinking about co‐opetition. Underlying this metaphor is recognition of the need to consider both public mechanisms as well as the market when framing creative industries development policy. Policy implications for human capital, urban policy and sectoral infrastructure are described.     

Creative shifts and directions

The availability and “readiness” of culture as a mode of governmental control makes cultural policy a matter of great importance in any contemporary society. This is true not only in liberal democracies with established arts councils or cultural policies, it is also proactively pursued by a technologically advanced yet illiberal regime like Singapore, eager to position itself as the global “Renaissance City” of the twenty‐first century. What this “renaissance” model entails remains highly cryptic, not least because cultural terms and political markers are often elusive, but also because the very concept of “cultural policy” shifts along with the political and economic tides in Singapore. Drawing on a rarely cited essay by Raymond Williams, this article offers an historical look at cultural policy in Singapore – from its first articulation in 1978 to its present standing under the rubric of “creative industries” (2002). It considers some of the problems encountered and the societal changes made to accommodate Singapore’s new creative direction, all for the sake of ensuring Singapore’s continued economic dynamism. This article contends that cultural policy in Singapore now involves extracting creative energies – and economies – out of each loosely termed “creative worker” by heralding the economic potential of the arts, media, culture and the creative sectors, but concomitantly marking boundaries of political exchange. In this regard, culture in Singapore has become more than ever a site for governmentality and control.     

The spatialisation of the digital games industry: lessons from Ireland

This article draws on the concept of spatialisation to better understand the development of a digital games industry on the periphery of mainland Europe, on the island of Ireland. Positioning digital games within the cultural and creative industries, we explore how global networks of production in this industry get territorialised, negotiated and shaped by local factors. Drawing upon an industry-wide survey in Ireland we found that employment has grown by 400% in the last decade but that this rate of employment growth and its concentration in large urban areas masks significant ruptures and shifts which more detailed spatial, occupational and social analysis reveals: in particular, how the state, multinational game companies, and physical and human capital interact to shape an industry which is strong in middleware, localisation and support but weak in content development. An understanding of global digital games production networks and of occupational patterns in this industry is, we believe, crucial for national and European cultural policies for the digital games industry and for the cultural and creative industries more generally.     

Towards ‘Embedded Non-creative Work’? Administration,digitisation and the recorded music industry

Abstract

For contemporary cultural policy, ‘non-creative’ work continues to form a conceptual blindspot: a foil to define and value creativity against. This paper develops existing categories to augment the task-focused notion of ‘embedded creativity’ with a more situated view of work’s cultural and institutional embedding. It first interrogates this ‘embeddedness’, taking a ‘cultural economy’ approach to intermediation and administrative support. Drawing on observations from an in-depth qualitative study of employees in major record labels, the second part articulates the heightened importance of ‘admin’ to recorded music industries, after ‘digital disruption’. Routine bureaucratic labour presents an atypical example, revealing much about the hidden relational and identity work that goes into constructing ‘creative industries’ as such. The intention is not to show that ‘embedded non-creative workers’ are in fact ‘creative’ but, on the contrary, to articulate the distinct contributions and value of support work in this context, questioning a persistent reliance on creative/non-creative dualisms. Policy research would benefit from enriched understanding of culture's assembly in marketable objects, reorienting understandings of ‘cultural’ labour markets and careers, and reimagining the role of traditional cultural ‘administration’ in the contemporary ‘creative economy’.     

文化与创意产业集群的研究谱系和前沿:走向文化生态隐喻?

文章基于文献研究,梳理文化和创意产业集群的研究谱系,指出该领域学术界:①没有将文化和创意产业本体论知识整合到集群分析框架;②对艺术家和创意阶层及其项目生产方式、知识流的空间过程关注十分薄弱;③忽视文化消费和中介因素对创意集群和文化生产的反身性;④比较偏向生产型创意集群的研究、忽视空间型创意集群和消费型文化产业园区和城市空间的研究;⑤在研究方法上相对单一。作者提出通过运用文化生态系统隐喻,进一步展开综合研究的可能性。     

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.     

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.