Development of a Cultural Strategy for the Island

STATES OF JERSEY

r

DEVELOPMENT OF A CULTURAL STRATEGY FOR THE ISLAND

Lodged au Greffe on 12th October 2004

by the Education, Sport and Culture Committee

STATES GREFFE

PROPOSITION

THE STATES are asked to decide whether they are of opinion

to re c eive the report of the Education, Sport and Culture Committee dated 12th October 2004 entitled The

Development of a Cultural Strategy for the Island' as a strategy for cultural development within the Island and –

( a ) t o approve the Vision and Mission as set out in Section 3 of the report and Key Aims and

Objectives of the proposed cultural strategy as set out in Section  4;

(b ) to agree that, in view of the level of investment being made in culture within the Island and the

current difficulties faced by cultural organisations with regard to revenue funding –

( i) w o rk should be undertaken as soon as possible to address the issues of building

maintenance within the cultural sector;

(i i ) a r e view of Opera House funding should be carried out to ascertain whether the current

loan arrangements are an efficient and effective means of securing resources;

( c ) to approve the measures recommended by the Education, Sport and Culture Committee with

regard to the relationship between cultural organisations and the Committee as set out in Section 5 of the report; and

(d ) to approve the creation of a new Jersey Council for Culture as set out in Section  5 and Appendix  6

of the report.

EDUCATION, SPORT AND CULTURE COMMITTEE

REPORT

THE DEVELOPMENT OF A CULTURAL STRATEGY FOR THE ISLAND

Contents

Executive summary

Section 1 B a c kground

Section 2 T h  e scope and definition of culture

Section 3 A p roposed vision and mission statement for culture Section4 A i m s and underpinning objectives

Section 5 R  es ourcing the Strategy

Section 6 R  ec ommendations

EXECUTIVE SUMMARY

Section 1 – Background

In December 2002, the Committees for Education and Sport, Leisure and Recreation merged to form the new Education, Sport and Culture Committee (ESC Committee). The new Committee carries the States' responsibility for culture'. In fulfilling its responsibility in this respect, the Committee has undertaken research and consultation with regard to the development of a policy and strategy for culture within the Island. The following Report and Appendices outline the Committee's finding with regard to the research and consultation and provide a proposed vision, mission and key aims for the development of culture within the Island.

Section 2 – The scope and definition of culture

The ESC Committee accepts that the term culture' is very wide-ranging. Attempts to define the term can be either too narrow and restrictive or so broad as to be virtually meaningless. For the purposes of this report therefore the ESC Committee has adopted a scope and definition congruent with the proposals of the U.K. Department for Culture, Media and Sport (DCMS).

Central to that definition is a belief that creativity' is at the heart of all cultural activities. As such, culture has intrinsic value (beneficial in its own right) and instrumental value in that it brings economic and social benefits to the whole community.

Section 3 – A vision, mission and key aims for culture

In proposing a vision and mission for culture, the Committee emphasizes that culture is central to the life and well-being of the whole community; as such the Strategy needs to be embraced by all States members and committees. The Committee also proposes the adoption of 7 key aims, each with underpinning objectives for the development of the cultural life of the Island.

Section 4 – Aims and objectives

This section tabulates the proposed aims and objectives. It illustrates the level of support recorded for each objective during the consultation process and it links each objective to the aims of the ESC Committee and the aspirations of the States Strategic Plan 2005 – 2010.

In recognition that the achievement of the aims and objectives will require close co-operation between a number of States bodies and other organisations, the tables also highlight the principle partners in the achievement of each objective.

Section 5 – Resourcing the Strategy

Independent research suggests that while a great deal of capital investment has been made in culture over the years, the sector does not have enough revenue funding. It is estimated that an additional £360,000 will be required if current levels of activity are to be maintained. A further £100,000 will be needed if the ESC Committee is to achieve its priority aims of directing a greater proportion of resources to the grass roots. This section considers how current revenue funding is spent and it notes that the ESC Committee has agreed to reallocate, from its own resources up to £310,000 in the cultural sector in 2005. Furthermore, this section suggests –

• th a t there should be a review of current arrangements for maintaining properties used by cultural organisations;

• t h a t the means by which the Opera House is funded should be reviewed;

• a n e w more direct organisational relationship should be developed with the cultural organisations.

The section also outlines the need for a new voluntary body – a council for culture –

• t o s u pport cultural development in the Island by representing the cultural sector and providing advice to the Education, Sport and Culture Committee and other organisations on matters of policy, support, co- ordination and management of cultural activity and provision in the Island;

• t o a t tract increased investment in the cultural sector;

• t o e n courage wider participation in cultural activities through the promotion of culture within the wider community.

Section 6 – Recommendations

This section requests States members to –

• a p p r ove the vision, mission and key aims and objectives of the proposed cultural strategy;

• n o t e the investment being made in culture within the Island;

• a g r e e that work should be undertaken as soon as possible to address the issues of building maintenance within the cultural sector;

• a g r e e that a review of Opera House funding should be carried out to ascertain whether the current loan arrangements are an efficient and effective means of securing resources;

• a p p r ove the measures recommended by the ESC Committee with regard to the relationship between cultural organisations and the ESC Committee;

• a p p r ove the creation of a new council for culture.

Background

In December 2002, the Committees and Departments of Education and Sports, Leisure and Recreation were merged to create a new States Committee and Department with overall responsibility for Education, Sport and Culture (Education, Sport and Culture [ESC] Committee. The new ESC Committee carries responsibility for sponsorship and championing' of the Arts and Heritage, aspects of which were previously held by the Finance and Economics Committee and the Education Committee.

In order to fulfil its responsibilities in this respect the Committee has worked with a number of local cultural organisations, has taken expert advice, and undertaken public consultation on the development of a strategy for culture within the Island. The following report takes account of the outcomes of these processes, and sets its recommendations with regard to key aims, resource management and organisational structures for cultural development, within the context of the ESC Committee's own published aims and the aspirations for the Island expressed in the Draft States Strategic Plan 2005 – 2010.

The scope and definition of culture

The Education, Sport and Culture Committee (ESC Committee) recognises that culture' is at the heart of most things that we do as individuals or within communities. It comprises the core beliefs and values which establish individual and community identity, it is also the means by which those core values and beliefs are transmitted and developed.

Ipnr opproosdaulcs ionfg tthheis U re.Kpo. rDt tehpea rEtmSCen Ct ofomr mCiuttletuer he,a sM aeddoipat eadn da Swpiodret s(cDoCpeM fSo)r. cAulst usruec hin, cJeurlstuerya,l[ 1a]c ctiovnitgierus einntc wluidthe tthhee arts, the use and development of libraries and museums, heritage, archaeology, archives, architecture, crafts, the

creative industries, entertainments, festivals and reading. It also overlaps with many other areas of activity such as sports, tourism, gardening and horticulture, and other activities such as countryside and water based recreation and it links with sectors such as urban regeneration.

In attempting a definition of culture therefore, the ESC Committee supports the view that cultural activities –

" in v o lve some form of creativity in their production, that they are concerned with the generation and communication of symbolic meaning, and that their output embodies, at least potentially, some form of intellectual property." (From: D. Throsby, Economics and Culture, Cambridge University Press, Cambridge, 2001.)

Creativity is at the heart of all cultural activities. These are not routine activities but require skill, learning and innovation. Culture gives meaning to people's lives, it shapes their identity and the identity of their community. The generation, production and communication of meaning requires unstinting effort, intelligence and inspiration. Excellence and quality are central. Some cultural activities result in tangible products, such as books, CDs, videos, museum displays and artworks. Others rely on more fleeting experiences – theatre and concert performances, dancing and sports events, but all are the result of human intellectual endeavour and, because all embody intellectual property, all have economic value.

This inclusive definition of culture means that culture is not the preserve of a few but a part of everyone's life. Culture is for everyone. Different cultural activities are enjoyed for their own sake by different groups. They give value and meaning to the lives of individuals and communities and, as such, they have a huge intrinsic value. They bring benefit in their own right. Without such activities life for many would be little more than boredom and drudgery.

However, culture goes further. Cultural activities are magnet' activities and they bring wider social and economic benefits to the community as a whole. As such they have instrumental values. Experience elsewhere shows that culture is an increasingly important economic driver. It can spearhead regeneration. It enhances the quality of life for individuals; it strengthens communities and brings health, education and community safety benefits to everyone. For Jersey, it is fundamental in fostering the remarkable and unique identity of the Island and in helping direct the continuous evolution of that identity in the face of a rapidly changing world.

A vision and mission statement for culture

Vision

The ESC Committee proposes that the States adopt the following vision statement for culture –

T h e people and the States of Jersey recognise that culture in all its forms is central to the life of the Island, to its identity, to its quality of life, to its sense of community, and to its future prosperity'.

Mission

The Committee also proposes the adoption of the following mission statement –

T h e States of Jersey is committed to providing adequate resources for the development of a strategic framework for culture.'

Aims

Within that context and in the light of consultation with key cultural providers and members of the general public, the  ESC  Committee  proposes  the  adoption  of  7  key  strategic  aims  with  underpinning  objectives  for  the development of the cultural life of the Island –

A i m 1:   T o foster, develop and strengthen the Island's identity

A i m 2:   T o make cultural activities integral to the economic and social development of Jersey A i m 3:   T o help develop and boost economic activity

A i m 4:   T o enrich the quality of life for all residents and enhance our visitors' experience

A i m 5:   T o help develop culture at the grass roots

A i m 6:   T o help foster lifelong learning

A i m 7:   T o widen access to, and participation in, cultural activities

Objectives

Within each aim, the Committee, through consultation, has developed a series of objectives. The following tables list these objectives, they provide an indication of the level of support received through the consultation process and they illustrate how the objectives meet the ESC Committee's published aims and those of the States contained within the recently published States Strategic Plan 2005 – 2010. Further details of the objectives are provided in Appendix  1.

Cultural Strategy – aims and underpinning objectives Aim 1: To foster, develop and strengthen the Island's identity

Aim 2: To make cultural activities integral to the development of Jersey

Aim 3: To help develop and boost economic activity

1. To support programmes of 100.0% To  promote  the 1.1 Economic Economic activity  which increase cultural development  and growth with Development tourism to the Island. provision  of  facilities, sustainable Department events,  activities  and inflation

publications  to  provide  a

range  of  engaging 1.2 Encourage

experiences. enterprise,

innovation and

diversity

Develop a tourism strategy which will investigate new opportunities and niche' markets

2. To develop/co-ordinate with 88.5% To  promote  the 1.1 Economic All cultural all  major  cultural  providers  a development  and growth with organisations three to five-year programme of provision  of  facilities, sustainable

major festivals, conferences and events,  activities  and inflation Economic events  on  cultural  themes  to publications  to  provide  a Development attract and sustain tourism to the range  of  engaging 1.2 Encourage Department Island. experiences enterprise,

innovation and

diversity –

Develop a tourism strategy which will investigate new opportunities and niche' markets

3. Working with other States 96.3% To  promote  the 1.1 Economic Economic departments  and  cultural development  and growth with Development providers to help develop green provision  of  facilities, sustainable Department tourism' through  signage, events,  activities  and inflation

artworks, information, tours, etc. publications  to  provide  a Planning and

range  of  engaging 1.2 Encourage Environment experiences enterprise,

innovation and All cultural diversity organisations

Develop a tourism strategy which will investigate new opportunities and niche' markets

4: To enrich the quality of life for all residents and enhance our visitors' experience

Aim 5: To help strengthen culture at the grass roots

Aim 6: To encourage all the major cultural providers to become learning organisations dedicated to helping their staff and volunteers in their self-development

Objective Support Link to ESC Committee Link to States Key partners

achieved in aims/responsibilities Strategic Plan

consultation

6.7  To  encourage  courses, 96.3% To  develop  and  promote  a 1.2 Encourage Economic trainee  and  apprenticeship vision  of  learning  and enterprise, Development schemes,  residencies  and  other continuous  development innovation and

programmes in order to develop based  on  access  to diversity Careers Service individual  expertise  across  all opportunities  for  all

cultural sectors. members of the community. 5.2 Improve access Highlands

to training, College education and

leisure

opportunities for

young people

3.6 Aiming for a well-educated society

Ensure that suitable provisions are made to encourage lifelong learning

Aim 7: To widen access to, and participation in, cultural activities

SECTION 5

Resourcing the Strategy

The strategic aims and objectives set out above and in more detail in Appendix 1 are ambitious and will require close co-operation and support from a number of States Committees and other organisations. Additional investment in culture and a restructuring of current structures will also be required if all of the aspirations are to be met. It will however, bear great dividends –

• i n s u pporting Jersey's distinctive identity; (see Appendix 3)

• t h ro u gh assisting economic development by promoting tourism; (see Appendix  2)

• b y e ncouraging a diversified economy through the development of cultural and creative industries; (see Appendix  2)

• b y e nhancing Jersey's reputation as an attractive place to live, work and locate business. (see Appendix  2)

In effect, it will make a major contribution to the attainment of the States strategic aims detailed in the States Strategic Plan 2005 – 2010. Four areas of resourcing need to be considered however –

• t h e c ultural capital estate (buildings);

• r e p a yment of loans (Opera House);

• f u n d ing of cultural activities;

• s e c u ring further resources to fulfil the aspirations of the key strategic aims and contribute towards the broader aims of the States contained within the Strategic Plan 2005 – 2010.

The background to this is explored in more detail at Appendix 5. Maintaining the cultural estate (buildings)

The States has financed huge capital developments in culture over the past 10 years and should be applauded for this, but this investment has not been matched by increases in revenue funding to keep pace with the development of the cultural estate'.

As a result of this inadequate recognition of the full life costs' of the cultural estate and lack of understanding that a large portion of the costs of culture are tied up with the overheads associated with the buildings rather than with the cultural activities themselves, some major cultural providers do not have sufficient funds to fulfil their duties as tenants' under the terms of the lease agreements proposed by the States. It is difficult to see any benefit to this situation, given that occupied buildings are generally better cared for than unoccupied ones, and that maintenance costs to the States remain whether or not the buildings are being used productively or lying empty. Currently, cultural organisations do not have the revenue funding to maintain buildings that they occupy, and in some instances have been unable to agree lease arrangements with the States. For the current year ending December 2004, buildings are maintained through a one-off' minor works capital vote of £125,000. For the future, it will be important to set in place a longer term financial structure which enables cultural organisations to take responsibility for their tenancy' of States buildings (see objective 2.4). It is not envisaged that this will require additional funding, but rather an acceptance by the States that current arrangements need to be reviewed and longer term planning needs to be undertaken.

Repayment of loans

On 5th July 1999 the Jersey Arts Trust entered into a loan agreement with Barclays Bank to borrow £5.5  million in order to refurbish the Jersey Opera House. The loan bears a fixed annual interest rate of 6.46%. Interest only payments are currently £355,300 per annum to service and capital repayments are due to commence in October 2005. These are likely to be in the region of £575,000 per annum. Over the next 16  years that equates to £8,980,300, hence an approximate further £3.5  million will have been paid out in addition to the£1.4  million that has already been paid to Barclays over the past 4  years. Effectively, the States pay the current loan to the Jersey Arts Trust who then pays Barclays Bank. There is a need to consider whether this loan arrangement for the funding of the refurbishment of the Opera House is an effective and efficient use of States resources. It could be argued that it may benefit the States to pay off the loan from its reserves. The amount of interest saved on the loan may well be more than the interest gained on its reserves.

Resourcing cultural activity

The following table illustrates States investment in major cultural organisations (2003).

Resourcing cultural activity 2003 Actual Income

Jersey Jersey Jersey Jersey

Heritage Opera Arts Arts

Trust House Centre Trust Libraries TOTALS

£ £ £ £ £ £

F&E Committee and ESC Committee investment

Tourism and Other Grants Property Services (St.  James) Total States Grants

1,861,160 400,000

358,500 518,400 115,105 40,000 75,000

1,327,830 4,465,890 155,105

75,000 4,695,995

Source – Figures are based on the audited (where available) and draft accounts for the year ended 31/12/2003.

Independent research (Leisure Futures plc.) suggests that current funding levels of most of Jersey's major cultural institutions have been set at, or not much above, the minimum amount necessary for their survival and this has hampered their development, encouraging blander and less distinctive programming driven by a need to consider what will attract the greatest numbers of audiences for the least cost and risk. It makes it difficult for them to work in a meaningful way towards many of the aims and objectives set out above because improvements in quality and increases in access and education work cannot happen without first paying the core organisational costs – staff costs and building overheads.

This problem is exacerbated by the fact that the amount of income that the cultural institutions can raise from other sources is declining. The decline in visitor numbers to the Island has led directly to a reduction in visitors to cultural  provision  and  a  loss  of  revenue  to  those  organisations.  Rationalisation  in  the  finance  sector  has compounded the problem through a decline in sponsorship income.

The Jersey Heritage Trust, despite an increase in revenue funding from ESC Committee for 2005, faces a £100,000 shortfall of income over expenditure and will have to terminate some aspects of its service during 2005. The Jersey Arts Centre is eating into its reserves. The Jersey Opera House has experienced severe financial difficulty in recent weeks and its position remains precarious.

Increased funding would enable organisations to develop work in education, outreach, and programmes of activity to widen access. Programmes such as these increase skills and attainment of school students and others, foster the evolution of the Island and its identity and encourage greater participation in cultural activity.

Within the ESC Department a review of the Library Service's provision and funding is being undertaken. The table below, therefore, based on independent advice from Leisure Futures plc., and other sources, sets out the estimated additional funding required by the remaining 3 major cultural providers. Without increases, the strategy will not be achieved and cuts in services provided by these organisations are inevitable.

In effect, £360,000 is required to maintain current levels of service and activity.

As well as seeking to maintain current levels of cultural activity however, the Education, Sport and Culture Committee, driven by its priority to target support to the grass roots of cultural activity, proposes the creation of a new source of support for cultural development –

• a g rants  and  loans  fund  (£50,000)  to  encourage  and  help  local  and  community  cultural

organisations in their development through the provision of grants and loans (see Aim  5.4) and to support individual artists, cultural workers in furthering their careers and/or in developing a stronger economic base for their cultural activities, and in helping to support a market for their works and activities (see objective  3.5 and Aim  5).

In effect, a total investment of £410,000 of revenue funding is required. Resources within the ESC Department

The States decision to create a Committee for Education, Sport and Culture made a significant step towards establishing an overall strategic function for culture within the States. In this role the Committee will be able to support culture –

• w  it h in the States by championing the cause of culture, ensuring due note is taken of cultural considerations and that adequate resources are applied to support, provision and development;

• w  it h in the community by encouraging close co-operation and liaison between States departments,

committees,  and  the  private  and  voluntary  sectors  to  develop  cultural  activity  through,  for example, the Island Plan, the development of cultural tourism, the development of a percentage for art scheme and support for development of a commercial cultural sector and;

• b y m  aking specific provision for culture through a variety of services and initiatives some of

which are directly managed' such as the Library Service, others which are grant aided to make specific provision, such as the Jersey Heritage Trust, and by supporting voluntary groups and individuals in cultural development.

To achieve the above and to meet the £410,000 funding shortfall mentioned above, the ESC Committee has agreed to –

• r e a li gn resources within the ESC Department to invest up to an additional £310,000 in the cultural sector;

• w o r k with the Jersey Heritage Trust and States Committees to agree the additional funding required by the Trust to fulfil its role with regard to public records management on behalf of the States;

• r e -a l ign resources within the ESC Department to create a post of Cultural Co-ordinator' within a

new Culture and Lifelong Learning Division of the Education, Sport and Culture Department to strengthen its

commitment to culture and to develop its relationships with cultural organisations. The key responsibilities of the post will be the achievement of the key objectives contained within this strategy, the management of partnership arrangements with key cultural organisations and the co- ordination of effort across the sector;

• i m p r ove efficiency and effectiveness in its activities and decision-making through the creation of a new advisory body for cultural matters – a Council for Culture.

Having made the above commitment however, the ESC Committee is aware that there is no possibility of finding additional resources for cultural provision within its existing budget allocation and that further support for the realisation of this strategy will be dependent on additional funding from the States. The ESC Committee will be making the case for additional funding in 2006.