Trade and culture: the ongoing debate

ABSTRACT

The debate over how to reconcile trade liberalization with cultural policy is a long-standing one. There is great variation in how countries have navigated this debate. Furthermore, evolving individual policy approaches show noteworthy dynamism, largely in response to domestic politics, shifts in the international trading system and technological developments. This special issue explores different approaches to the trade and culture debate across geographic space, as well as the evolution across time through analysis of six cases – Canada, the European Union, South Africa, Latin America, the United States and China.     

China and the “culture and trade” debate: a holistic approach

ABSTRACT

Over the past century, the ‘culture and trade’ debate has constantly evolved, particularly in the wake of rapid and still accelerating technological and scientific advances. These changes, manifest in an increasing convergence of many new technologies and industries, meant that the strict separation of culture from trade by means, for instance, of general or special exceptions in international trade agreements, such as the 1947 General Agreement on Tariffs and Trade (GATT) or the 1988 Canada–United States Free Trade Agreement (CUSFTA), can no longer be sustained. It means that in light of the emergence of oxymoronic concepts like ‘the cultural and creative industries’, the debate can no longer be framed along binary modes of thinking that oppose the liberalization of international trade and the protection and promotion of the diversity of cultures. Instead a more holistic approach seems to be needed, which appears to coincide with the approach taken by the People’s Republic of China (PRC), which joined the WTO in 2001. The present paper examines the holistic approach by the PRC, which seeks to combine rather than separate culture and trade in its domestic, regional and global law and policymaking.     

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.     

Cultural diversity and free trade: the case of the EU-Canada agreement

This article examines the role assigned to culture in general and to cultural industries and diversity in particular by the Canada-EU Comprehensive Economic Trade Agreement (CETA). Although it pursues further economic liberalization, the arrangement is about much more than trade: its preamble, for instance, contains a reference to the 2005 UNESCO Convention on the Diversity of Cultural Expressions. Nevertheless, the text lacks a general exception clause protecting culture. This paper examines the consolidated CETA text from the perspective of political economy to clarify to what extent this is an opportunity to reconcile rules of free trade with cultural policies aiming to protect and promote the diversity of cultural expressions, especially when the latter derive from cultural industries in both analogue and digital scenarios.     

Great expectations – the European Union and cultural policy: fact or fiction?

The European Union secured limited legal ‘competence’ to act in culture in 1992. This article examines the operational context and its complicated and countervailing tensions that make European cultural policy formulation and implementation difficult. Underlying problems originate in the failure properly to define what is meant by ‘culture’ in different contexts or to identify clear and pragmatic policy objectives, although legitimate ‘instrumental’ use of culture is common. The EU’s institutional structures (Council, Commission and Parliament) are often at cross‐purposes, while the national interests of member states can have a negative effect. The structure and internal politics of the Commission ensure that the Directorate responsible for ‘culture’ remains marginal, despite its growing ambition. An attempt to institute an ‘Agenda for Culture’ in 2007 has had some initial success, but given the definitional, legal, political and administrative problems, claims being made for significant progress seem somewhat premature.     

Rhetoric of unity and cultural diversity in the making of European cultural identity

The fundamental aim of the cultural policy of the European Union (EU) is to emphasize the obvious cultural diversity of Europe, while looking for some underlying common elements which unify the various cultures in Europe. Through these common elements, the EU policy produces ‘an imagined cultural community’ of Europe which is ‘united in diversity’, as one of the slogans of the Union states. This discourse characterizes various documents which are essential to the EU cultural policy, such as the Treaty of Lisbon, the European Agenda for Culture and the EU’s decision on the European Capital of Culture program. In addition, the discourse is applied to the production of cultural events in European Capitals of Culture in practice. On all levels of the EU’s cultural policy, the rhetoric of European cultural identity and its ‘unitedness in diversity’ is related with the ideas and practices of fostering common cultural heritage.     

Canada’s Supply Management System and the Dairy Industry in the Era of Trade Liberalization: A Cultural Commodity?

ABSTRACT

Canada’s dairy farmers have spent the last 40 years fighting to preserve their supply management system despite increases in the desire to liberalize trade through the expansion of regional free trade agreements and the targeting of agriculture in recent rounds of the General Agreement on Tariffs and Trade (GATT). How has Canada’s supply management system resisted trade liberalization thus far? Moreover, what strategies have Canadian dairy farmers used to lobby the government to preserve this system? The answer to these questions lay within the intersection of culture and economics. Canadian dairy farmers have been successful in framing Canadian dairy as a distinctly Canadian cultural commodity, and therefore framing supply management as the economic tool needed to defend this cultural commodity. In exploring this topic, this article will touch on Canada’s history of preserving cultural institutions, as well as the historical importance of Canada’s supply management system.     

The Tenco effect. Suicide,San Remo,and the social construction of the canzone d'autore

Abstract

Canzone d'autore is an indigenous expression that has no precise equivalent in other languages. Its social use identifies a genre of popular song that presuppose the existence of an ‘autore’ taken in its most vigorous sense, meaning a ‘creator’, an ‘artist’– but how did this claim to artistry originate? How did it insinuate itself into the world of song, a genre that by definition belongs to the realm of what is traditionally called in Italian ‘musica leggera,’ with unmistakably pejorative connotations? In this essay, I will put forward a sociological interpretation of the genesis of the canzone d'autore, using as a strategic conceptual device the idea of cultural trauma. The traumatic event that I propose to explore, making use of this concept and its analytical machinery, is the suicide of the singer-songwriter Luigi Tenco during the seventeenth San Remo ‘Festival della Canzone’ (‘song festival’) – that is the best-known, most controversial, and most influential single event in the field of Italian ‘musica leggera’, an annual event regularly attended every year – via radio, television, or audience participation – by millions of Italians. Through a reconstruction of that suicide and above all of the public and dramatic events that followed in response to it, the paper examines the social process that transformed an individual tragedy into a collective, social drama, a process that not only produced a new musical classification, but also a new cultural and aesthetic category.     

The art of integration: probing the role of cultural policy in the making of Europe

Mirroring Jacques Delors’ much quoted ‘No one falls in love with a common market,’ there has been an increased emphasis on ‘culture’ as a vital tool in the European Union (EU) integration process. Yet, how these programs for ‘cultural exchange and dialogue’ affect artistic production, and reception, is rarely discussed. Drawing on interviews with actors in Berlin and Istanbul who engage with cultural policy in the European arena (2005–2008), this paper aims to illuminate the tensions that this nascent European cultural policy has engendered, not least with regard to the EU stipulations on national cultural sovereignty. I argue that while EU cultural initiatives indeed produce a kind of ‘Europeanization,’ they do so mainly through thematic and institutional incorporation. However, this type of integration tends to recast power differentials within the EU and beyond, despite proclaimed goals to the contrary, as cultural exchange programs tend to reinforce distinctions between ‘art proper’ and ‘ethnic cultural production.’     

Peripheral creativity: temporary cultural uses as alternatives to inefficient policies?

ABSTRACT

The article focuses on temporary and improvised cultural spaces in marginalized neighbourhoods of Rio de Janeiro, Brazil. They are presented here as alternatives to current urban and cultural policies, often based on international ‘best practices’ models with exclusionary and segregating consequences. It begins with a brief overview into North American and Western European cultural planning policies. It then analyses the instability of cultural policies in Brazil, highlighting that, after a period of State recognition of bottom-up actions, administrators have turned to a contradictory planning scheme that mixes outdated and recent international trends, leading lower-income inhabitants to self-build their own cultural spaces. Unlike many products of today’s global strand of ‘tactic urbanism’, Rio’s temporary spaces are politically charged territories of resistance. An example is ‘Cine Taquara’ – an improvised cinema and debate forum that illustrates how, in an unequal city, such initiatives can do more towards social inclusion than ready-made models.     

Trade and culture: the United States

ABSTRACT

The US government has long held that cultural goods and services represent an economic sector like any other and should be liberalized. The American cultural and digital industries enjoy a strong competitive advantage and constitute a leading export sector. This US stance has antagonized many countries pursuing cultural policies. This has led the US government to soften its trade strategy and accept financial measures, as well as a broader array of ‘traditional’ cultural regulatory instruments. At the same time, the United States insists on the absence of restrictions in digital networks, through which cultural contents are to be increasingly distributed and accessed. Under the negative-list negotiating approach, whereby everything is liberalized save for specific exceptions, states parties to US trade agreements have secured a varying array of measures. However, only a handful, essentially industrial countries, have secured digital exceptions, the latter coupled with conditions raising questions concerning their applicability.     

European integration through ‘soft conditionality’. The contribution of culture to EU enlargement in Southeast Europe

Abstract

This article discusses how the European Commission employs cultural policy to facilitate EU enlargement processes. Since 1989 the European Commission has funded cultural programs in accession states as a ‘soft’ complement to its ‘hard’ conditionality. It reflects a more general trend in which the EU employs alternative modes of governance to deal with resistance against EU interference in national affairs. By investing in culture, the EU hopes to stimulate transnational cooperation, economic growth, social cohesion and identification with the EU. However, the outcomes of these investments cannot be predicted. Characteristic for soft policy programs is that participating states are responsible for their eventual interpretation and implementation. By comparing the policies and practices of EU cultural investments in accession states Southeast Europe, and particularly in Serbia, this paper discusses the limits and possibilities of EU funded initiatives to enlargement revealing an increasing governing through soft conditionality.     

Living with instrumentalism: the academic commitment to cultural diplomacy

Despite the influence of cultural policy studies and other theoretical approaches ‘after critique’, the dominant paradigm across much of the humanities remains anti-governmental especially when ‘culture’ is the other term in the equation. This paper argues instead for a positive relationship between humanities academics/intellectuals and the governmental agendas of cultural diplomacy, and for ways of accommodating critical perspectives on both the concept of ‘the national interest’ and the instrumentalisation of culture. It examines the policy objectives of the Australian government’s main cultural diplomacy agencies together with practical examples from its bilateral bodies, in particular the Australia-China Council and its program of support for Australian Studies in China.     

Culture for competitiveness: valuing diversity in EU-Europe and the ‘creative city’ of Berlin

The European Union (EU) has in recent years propagated an approach to ‘culture’ that pulls together support for the creative and cultural industries with diversity-sensitive immigration and integration strategies, drawing on popular policy visions of the ‘creative’ and ‘intercultural’ city. This approach emphasizes the role that the diversity of culture, as personal resource, can play in enhancing economic competitiveness. The article examines its logic and possible effects through an analysis of EU documents and policy in Berlin. Berlin intersects with the EU’s agenda, using EU structural funds and participating in the European program ‘Intercultural Cities’. It is shown that the attempt to use ‘culture for competitiveness’ equates support-worthy ‘diversity’ with forms of culture that conform to (neo)liberal values and priorities. The attempt to shape a cosmopolitan place attractive for investment and the high-skilled feeds into gentrification processes that create ‘diverse’ neighborhoods where ‘difference’ has no place.     

Defining the relationship between Australia and the European Union: is the framework treaty enough?

Australia is currently negotiating a framework treaty with the European Union (EU) that aims at closer cooperation on a wide range of shared policy goals. The treaty is not expected to include trade-liberalisation commitments. This article queries why this is, given the importance of trade and business relations with the EU for Australia, and the fact that the EU exerts international influence primarily as a trade power, rather than a foreign and security policy power. Since 2006, the EU has also been negotiating ‘new-generation’ bilateral free trade agreements (FTAs), focusing on tariffs and regulatory non-tariff trade barriers. It has now committed itself to FTA negotiations with many of Australia's trade partners in Asia and the Organisation for Economic Co-operation and Development. An FTA and a complementary framework treaty were concluded with South Korea in 2010, and the EU is currently negotiating a similar package with Canada. As Australia and Canada are comparable trade partners for the EU, the article argues that an FTA on the EU–Canada model could be a more effective avenue for Australia to achieve deeper engagement with the EU.     

A False Start? British Perspectives on Italy’s Participation in the Early Phases of the European Economic Integration Process: The Case of the OEEC (1948–1952)

Abstract

This article examines how Anglo-Italian relationships unfolded in the aftermath of the Second World War within the framework of the Organization for European Economic Cooperation (OEEC). By analysing Italy’s participation in the early stages of the European integration process through the lens of British diplomacy, this contribution aims to shed new light on the international dimension of Rome’s post-1945 political and economic strategies. First, the article considers the main concerns that characterized Italy’s involvement in the OEEC activities between the late 1940s and the early 1950s: the promotion of the circulation of the intra- and extra-European manpower and the liberalization of trade and payments. Second, rather than making a ‘classic’ comparison between the divergent policies – particularly the internal and international economic programmes – that Britain and Italy pursued within the OEEC, this article highlights the extent to which an ‘asymmetry of power’ impacted Italy’s ability to realize its strategies. To conclude, the essay assesses how bilateral and multilateral relationships in the OEEC arena mutually contributed to the shaping of Italy and Britain’s patterns of post-WWII economic reconstruction.     

Bilateral trade agreements as drivers of national and transnational benefit from health technology policy: implications of recent US deals for Australian negotiations with China and India

This article compares controversial health technology provisions in two important United States free trade agreements with developed nations: Australia and with South Korea. It examines the multinational corporate forces behind the medicines and medical devices components of these texts and their likely impacts upon Australian trade negotiations with China and India. It also examines the implications of some recent changes to US trade policy for this area in subsequent bilateral deals such as that with Peru. This article argues it is important that the Australian government change policy and, like the present Congress in the United States, now systematically approach such impending trade agreements with a view to assisting the partners’ regulatory frameworks to maximally enhance national and transnational benefit from their medicines and biotechnology industries.     

Cultural policies for sustainable development: four strategic paths

Abstract

In the Sustainable Development Goals adopted by the United Nations in 2015, the role of culture is limited. We argue that culture’s absence is rooted in the longue durée of interplay among theoretical and policy debates on culture in sustainable development and on cultural policy since the mid-twentieth century. In response to variations in concepts and frameworks used in advocacy, policy, and academia, we propose four roles cultural policy can play towards sustainable development: first, to safeguard and sustain cultural practices and rights; second, to ‘green’ the operations and impacts of cultural organizations and industries; third, to raise awareness and catalyse actions about sustainability and climate change; and fourth, to foster ‘ecological citizenship’. The challenge for cultural policy is to help forge and guide actions along these co-existing and overlapping strategic paths towards sustainable development.     

Australia’s relations with the European Community in a historical perspective: an elusive partnership

ABSTRACT

In 2015, Australia and the European Union successfully negotiated a Framework Agreement. This agreement is an essential step in establishing a stronger Australia–European Union partnership and achieving closer bilateral cooperation. For years, negotiating such an agreement had proved impossible. In the 1970s, successive Australian governments showed interest in enhanced collaboration with the European Community, but the political climate for closer relations was far from encouraging. This article explains why this was the case. In doing so, it also explores how the Whitlam and Fraser governments envisaged, framed and developed Australia’s ties with the European Community in the 1970s, and asks whether a more positive approach on their part could have led to a stronger relationship. Based on recently declassified government files, this article shows that although both Whitlam and Fraser fully grasped the importance of the European Community as an emerging international actor and were willing to deepen Australia’s ties with it, significant constraints existed against enhanced bilateral cooperation. With the Common Agricultural Policy still a considerable challenge to Australian economic interests and with the European Community focused mainly on the management of its internal market, broader political considerations were inevitably relegated to the margins of Australia–European Community consultations.