Cultural policy as mythical narrative

ABSTRACT

In this paper, we argue that policy assumptions are shaped by mythical narratives carrying underlying beliefs and values. Drawing on narrative studies, organisational theory and Gramsci’s cultural hegemony theory, we examine how sense-making narratives create consensus, how they imply causation and individual agency, and finally how narratives fragment to reveal alternatives to hegemonic ‘common sense’ assumptions. Applying this framework to cultural policy we examine the place of mythic, sense-making narratives in the historical development of foundational national cultural policies in the UK and Mexico – respectively, narratives of ‘the civilising mission’ and ‘social transformation’. We then consider narrative emplotment and individualisation underpinning assumptions about individual creativity in the UK creative industries policy. Finally, we address the postmodern turn in narrative studies, showing how fragmented, polysemous narratives fracture cultural policy into ‘personalised truths’ and give voice to other, counter-hegemonic perspectives. We conclude by proposing an agenda for narrative research in cultural policy.     

Cultural policy archetypes: the bathwater and the baby

ABSTRACT

Cultural policy archetypes have been fundamental to comparative cultural policy study and continue to be influential in both everyday and scholarly characterizations of national cultural policy systems. This paper explores the proposition that cultural policy archetypes reflect what people believe to be true about culture – their cultural ideologies. Cultural ideologies are integral to the formation of cultural policy and, thus, must be considered in any theory that hopes to measure the extent to which and explain why cultural policies differ. Cultural ideologies embody ideas about why culture is important and how it should be governed. Those ideologies spotlight certain administrative mechanisms, overemphasizing their role in systems that actually are deeply administratively hybrid. This makes archetypes poor tools for analyzing the mechanisms of cultural policy; however, because archetypes tell us about cultural ideologies in straightforward and powerful ways, it is essential that they continue to be a part of comparative cultural policy study.     

‘My Country is like my Mother…’: respect,care, interaction and closeness as principles for undertaking cultural heritage assessments

Investigation of social values is essential to understanding relationships between people and place, particularly in Indigenous cultural heritage management. The value of long-term ethnographic studies is well recognised, however, such approaches are generally not possible in many heritage studies due to time or other constraints. Qualitative research methods have considerable potential in this space, yet few have systematically applied them to understanding Indigenous peoples’ relationships with place. This paper reports on a qualitative study with Alngith people from north-eastern Australia. It begins by exploring the embodied, experiential nature of Alngith peoples’ conception of Country and their emphasis on four interrelated themes: Respect, Care, Interaction and Closeness when describing relationships to Country. We suggest that Alngith people-to-place relationships are underwritten by these ideals and are central to local expectations for respectful, inclusive heritage practices. The results also reveal new perspectives and pathways for Aboriginal communities, and heritage managers dissatisfied with the constraints of ‘traditional’ cultural heritage assessment frameworks that emphasise archaeological methods and values. The paper further demonstrates how qualitative research methodologies can assist heritage managers to move beyond the limitations of surveys and quantitative studies and develop a deeper understanding of Indigenous values, concepts and aspirations (social values).     

Can national cultural policy approaches be used for sub‐national comparisons? An analysis of the Québec and Ontario experiences in Canada

There has been relatively little comparative research undertaken on sub‐national cultural policy. This article aims to contribute to the development of sub‐national comparative studies by assessing the utility of national cultural policy approaches for comparative research at the sub‐national level in Canada. Drawing on studies of national cultural policy, the authors develop three main approaches to cultural policy and administration – the French, British and hybrid approaches – and explore their applicability to the origin and evolution of cultural policy and administration in the Canadian provinces of Québec and Ontario. This exploratory research suggests there is room for optimism in drawing on national‐level experiences to undertake sub‐national comparative cultural policy research, particularly for comparisons over broad time periods. The study also suggests that it will be important in subsequent research to further elaborate the models for present‐day comparative analysis and to refine and adapt them to reflect specificities at the provincial level of analysis.     

Arts practitioners in the cultural policy process: spear-carriers or speaking parts?

This paper considers the argument that arts practitioners are rarely acknowledged by cultural policy researchers as being more than marginally involved in policy-making. Drawing on public policy analysis which pays attention to a breadth of policy actors, and on the concept of civil society, the paper examines whether these approaches can help to better investigate and understand the role of arts practitioners in the policy process. It discusses this subject in relation to cultural policy in general and in the specific arena of British arts policy, focusing on original case-study research of playwrights’ organisations and playwriting policy. The case-study evidence demonstrates that arts practitioners – through involvement in policy debate and implementation, and their own initiatives and activities – are frequently engaged in the policy process and thus more broadly in the democratic public domain. Understanding of cultural policy development is therefore considerably weakened if the role of practitioners is ignored.     

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.     

Curating convergence: interpreting museum objects in integrated collecting institutions

This article is concerned with the phenomenon of convergence (institutional integration) of museums, libraries, archives and other cultural facilities. It investigates how such amalgamations impact the capacity of curatorial and collections staff to carry out interpretive practices, including object research, documentation and exhibition development. Through thematic content analysis of staff interviews conducted at five case studies of local government-run converged collecting institutions in Australia and New Zealand, the paper suggests that administrative restructuring – often predicated on the dual imperatives of financial efficiency and improved cultural provision – produces institutional frameworks that undermine the capacity of collections staff to interrogate the meanings of objects. In turn, impediments to interpretive practice limit the extent to which collections are rendered intellectually accessible to visitors.     

Heritage and ethnic identity: preserving Chinese cemeteries in the United States

This paper critically examines the role of ethnic community in the process of heritage management and preservation. Drawing on two heritage projects dedicated to historic Chinese American cemeteries – the nineteenth-century Chinese Memorial Shrine in Los Angeles, California and Concordia Chinese Cemetery located in El Paso, Texas – this study examines how heritage serves as a central referent in constructing a collective identity that gives continuity and political unity to an ethnic community. Heritage preservation, as a practice connecting the past and present, provides us with insight not only into the historic meanings attached to heritage, but also the contemporary values and ideologies of communities with regard to their efforts in interpreting the past. This paper highlights the relationship between identity politics and heritage, suggesting that heritage becomes a vital means of identity formation which helps articulate cultural traditions in the face of a dominant national culture that essentialises ethnic pasts.     

China’s Evolving Policy towards the Democratic People’s Republic of Korea under Xi Jinping

Despite international pressure to condemn North Korea (DPRK), China’s successive leaderships have dealt carefully with Pyongyang, especially vis-à-vis its nuclear weapons program. This moderate stance reflects the two countries’ decades-long relationship, summarised in the Chinese idiom that Pyongyang and Beijing are “as close as lips and teeth”. Nevertheless, the DPRK’s third nuclear test in February 2013 raised enormous challenges for the new Xi Jinping leadership to maintain the previous DPRK policy focused on the status quo and stability on the Korean Peninsula. China’s attitudes and policies towards the DPRK after the provocative third test signified a possible reorientation of Beijing’s DPRK policy. This generated repercussions in the countries concerned and prompted debates among experts. This article asks how these events should be understood and what their implications are for the Xi leadership’s policy on the DPRK, the stability of the Korean Peninsula, and Northeast Asia. Given China’s competitive relations with other major powers, we conclude that the Xi leadership will not abandon the DPRK; indeed it will reinforce the policy of strengthening China’s influence over it. Nonetheless one aspect of doing so will involve China opening up to other – cooperative, multilateral – approaches to reinforcing stability on the Korean Peninsula and in Northeast Asia.     

Strategic management for visitor-oriented museums

Abstract: Strategic management is a familiar concept in for-profit organisations but is relatively new to museums. This paper presents and discusses a model of strategic management for visitor-oriented museums that aims to be more comprehensive than current approaches. It shows how museums can overcome the tension between the strategic demand to develop visitor-oriented museum services and the duties and social mandate of museums as public institutions that are defined by cultural policy—enabling access to cultural heritage, promoting broad cultural participation and providing informal education. Visitor-oriented strategic museum management is concerned with attracting a variety of visitors as well as the development of museum services that are appropriate to diverse museum audiences. The model presented here emphasises the comprehensive strategic management concept. Audience research and evaluation are shown to be valuable analytic and revision tools for strategic management in visitor-oriented museums.     

License to judge: fleshing out expertise in cultural policy

This paper endeavours to examine different types of expertise in cultural policy. Unlike other conceptual studies, it focuses on the abstract notion of expertise i.e. the different forms of cognition and knowledge deployed in cultural policy, rather than the personage of an expert. The article proposes a distinction between arts expertise and technocratic expertise and employs five analytical categories within which they are discussed and compared with each other. Although a clear-cut differentiation seems impossible to achieve, the binary approach helps to shed light on how different forms of expert judgement in cultural policy can be framed and legitimised as well as how vulnerable they are to political influence and the concomitant pressure of the democratisation of policy-making.     

The immigrant “Other” and artistic expression: (de)bordering via festivals and social activism in Finland

This paper analyses how cultural production and artistic activities can explain the social (de)construction of borders. The study looks at the soft, cultural aspects of bordering, encounters between the immigrants and their host societies, and the conscious and unintentional ways of altering their mental frames. The analysis focuses on the World Village Festival organised annually in Helsinki, and a young literary project titled “Sidelight – is this Finnish literature?” Based on these two case studies, associations between the concepts of bordering, liminality and translation are developed to enable a deeper understanding of the encounters between immigrant cultures and their host societies.     

Going ‘mainstream’: evaluating the instrumentalisation of multicultural arts

This paper considers how debates over the instrumentalisation of the arts have informed the cultural production of an Australian arts organisation – Multicultural Arts Victoria (MAV). In an effort to make multicultural arts more ‘mainstream’, MAV has increasingly adopted market‐based rationales for its work – particularly the use of ‘audience development’ policy frameworks. It is easy to evaluate this marketisation of multicultural arts negatively as an acceptance of neoliberal policy agendas and as a weakening of its commitment to ‘cultural development’ goals. This paper suggests, however, via a critique of Ghassan Hage’s analysis of multiculturalism, that such accounts do not consider how economic rationales actually sit in practice with MAV’s other (cultural development) agendas. Such critiques, therefore, preclude an affirmative reading of the instrumentalisation of multicultural arts. An alternative analytical framework is proposed – one which can more readily account for multicultural arts as a set of practices informed by diverse agendas, and which acknowledges how such practices might both contest and converge with official government policies.     

World Heritage listing and changes of political values: a case study in West Lake Cultural Landscape in Hongzhou,China

World Heritage themes and frameworks, as well as the criteria for assessing the ‘outstanding universal values’ (OUV) of World Heritage sites, have been extensively criticised for being Eurocentric. Asia is a region of extraordinary levels of cultural, religious and ethnic diversity, which often comes into conflict with UNESCO understandings of heritage. Due to the influence of UNESCO, and the persuasiveness of the heritage discourses it authorises, Asian nations tend to utilise assessments and management ideologies that derive from a European viewpoint. This paper explores the changes in the political role of heritage during the process of World Heritage listing of a Chinese cultural heritage site, West Lake Cultural Landscape of Hangzhou. The study is based on three and a half months of fieldwork in Beijing, Shanghai and Hangzhou. Firstly, I examine how the government officials and experts formulated the nomination dossier, and explore their purposes in seeking World Heritage listing and their understanding of heritage. In addition, tensions between governments’ understanding of the values of the site and those of UNESCO and ICOMOS will be mapped. Secondly, I examine how the Chinese government used the World Heritage ‘brand’ and policies to construct national and local narratives during and after the World Heritage listing. In this paper, I argue that both national and local governments are quite cynical about the listing process, in that they not only recognise they are playing a game, but that the game is ‘played’ under Eurocentric rules and terms. They know some Chinese values do not fit into UNESCO’s conception of ‘outstanding universal value’ (OUV), and they have ‘edited out’ those Chinese values, which could not be explained to Western experts, and utilised the discourses of international policy and expertise. Ultimately, these values and ‘rules’ frame the management of the sites to some extent, as the Chinese government must not, in order to maintain the WH listing, deviate too much from the rules of the game.     

Diverse unity: creole contributions to interethnic integration in Guinea‐Bissau

The paper explores how creole categories of people who have constituted a small but influential minority in Guinea‐Bissau for centuries contributed to a countrywide, integrated national culture since the eve of independence in 1974. Since independence, several cultural representations previously exclusive to creole communities have been – driven by the nationalist independence movement and the early postcolonial state – transformed into representations of a new national culture, crossing ethnic and religious boundaries. The fact that creole identity and culture had been transethnic – i.e. creole identity brings together individuals of heterogeneous cultural, ethnic and geographic descent – during the colonial period, has fostered in postcolonial times the countrywide spread of previously exclusively creole cultural features. I argue that this ‘transethnicisation’ of creole cultural representations has unified Bissau‐Guineans across ethnic lines, causing a strong commitment with their nation ‘from below’.     

Discourse,justification and critique: towards a legitimate digital copyright regime?

Digitization and the internet have posed an acute economic challenge to rights holders in the cultural industries. Faced with a threat to their form of capital accumulation from copyright infringement, rights holders have used discourse strategically in order to try and legitimate and strengthen their position in the digital copyright debate with governments and media users. In so doing, they have appealed to general justificatory principles – about what is good, right, and just – that provide some scope for opposition and critique, as other groups contest their interpretation of these principles and the evidence used to support them. In this article, we address the relative lack of academic attention paid to the role of discourse in copyright debates by analysing user-directed marketing campaigns and submissions to UK government policy consultations. We show how legitimacy claims are justified and critiqued, and conclude that amid these debates rests some hope of achieving a more legitimate policy resolution to the copyright wars – or at least the possibility of beginning a more constructive dialogue.     

On not being Dubai: infrastructures of urban cultural policy in Istanbul & Beirut

ABSTRACT

This paper compares how Istanbul and Beirut both attempt to underline their cultural and developmental uniqueness today in contrast to a metonymic menace – Dubai, standing in for spectacular yet supposedly cultureless Gulf cities. Even amid their own speculative construction frenzies that threaten local heritage, Turkish and Lebanese city-shapers assert theirs are ‘real’ cities because they have ‘civilization’ and ‘history.’ By addressing their own efforts to build, defend, or oppose physical infrastructures related to local urban culture, Istanbullus and Beirutis rely on and reassert strategic, phatic discourses that frequently reference Gulf cities as counterpoint. Analysis focuses on how each city crafts a distinctive urban profile via civilizational appeals to historic senses of culture, inflecting infrastructural developments related to bridging (Istanbul) and bordering (Beirut). Historical truisms are deployed with marked flexibility to showcase these cities as ‘not Dubai.’ This study offers lessons on the particular worlding of Middle Eastern cities and the role of discourses in the material-symbolic infrastructure of implicit urban cultural policy.     

AUDIENCE DEVELOPMENT AND SOCIAL INCLUSION IN BRITAIN

This paper attempts to distinguish the different meanings of “audience development” and “social inclusion” – two areas receiving increasing attention in British cultural policy – by discussing their overlap and close relation to “access”. These policy areas are fraught with inherent contradictions when examined in the light of sociological theories on culture. Consumption skills, the level of which is determined socio‐economically, and the function of culture for distinction suggest problems and paradoxes for audience development and social inclusion. Discussion on representation in culture, which can work to institutionalise inequality, also leads to a call for a “target‐driven” approach to these areas. This would be fundamentally different from the dominant “product‐led” approach that tries to leave the core product intact whilst making changes in presentation. To become truly inclusive is a most formidable challenge for cultural organisations as it inevitably brings them into a wholesale review of their core products.     

Cannibalism & politics: The English Renaissance revisited

This article explores how anthropological approaches to Anglo-Native American exchanges in the 16th and 17th centuries – thinking through and beyond terms like ‘cannibal’ – can draw attention to different facets of encounter and shed light on the influence of indigeneity on English heritage. Using the Englishman Anthony Knivet’s travels to Brazil in the 1590s as a case study, what emerges is the importance of interdisciplinary approaches which acknowledge the complicated and at times surprising interactions between representations and lived experience, between rituals and their appropriations. Further, acknowledging the influence of indigenous American people and artefacts on English history has important implications for addressing the legacy of imperialism in cultural institutions, opening up new possibilities for collaboration, display and reconciliation.     

Tracing British cultural policy domains: contexts,collaborations and constituencies

This paper draws on a larger research project that investigates the networks and institutions shaping cultural policy across national, international and supranational contexts. Taking Britain as its touchstone, it identifies and maps some of the operational relations between culture, governance and nation shaping the development and orientation of contemporary cultural policy. It thus highlights key formal and informal domestic relationships and contexts within which Britain's local, regional and national cultural policy initiatives are situated. The British context – in which England figures strongly for historical, political and demographic reasons, and so draws a corresponding resistance across other constituents of nation – is shown to be both internally differentiated along various lines, and also embedded in the larger sphere of the European Union that redraws the boundaries of cultural policy and governance. In tracing the contours and interrogating the constitutive elements of Britain's domains of cultural policy, we seek to provide a foundation for understanding the intersections and influences that exist between fields of cultural governance, and their interdependence and fluidity.