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European Cities and Capitals of Culture PALMER/RAE ASSOCIATES International Cultural Advisors European Cities and Capitals of Culture Study Prepared for the European Commission PART I PALMER/RAE ASSOCIATES, BRUSSELS Palmer-Rae Associates Rue de la Croix de Pierre 74, B-1060 Brussels, Belgium Tel. +32 (0)2 5343484 - Fax +32 (0)2 5348161 E-mail: [email protected] - Web site: http://www.palmer-rae.com August 2004 Palmer-Rae Associates Rue de la Croix de Pierre 74, B-1060 Brussels, Belgium Tel. +32 (0)2 5343484 - Fax +32 (0)2 5348161 E-mail: [email protected] - Web site: http://www.palmer-rae.com REPORT ON EUROPEAN CITIES AND CAPITALS OF CULTURE PART I Project Team Director Robert Palmer Research Manager Susie Jones Senior Researcher Caspar Will Assistants Sofie Sweygers Susanna Malzacher Raphael Bosch-Joubert Database Consultant Stephanie Racette Cover Design Julie Doutrelepont Expert Advisers Tourism Perspectives Greg Richards Social Perspectives François Matarasso Economic Perspectives Stuart Gulliver External Advisers Eric Corijn Rod Fisher Beatriz Garcia Brit Holtebekk Gottfried Wagner Preface and Acknowledgements European Cities and Capitals of Culture Preface and Acknowledgements This report is based on a six-month study of European Cities and Capitals of Culture. It encompassed the gathering and compiling of facts and opinions from people in 27 different European countries. This task was only possible with the cooperation and help of hundreds of individuals who submitted answers to questionnaires, offered information and views in interviews and discussions and sent in reports and data. Most were pleased to be asked and expressed deep interest in the terms of the study and its possible findings. A frustration is that in a report such as this, it is not possible to record every experience and insight, and in an attempt to address the specifications for the study, we have had to focus on specific topics and issues. Because of the scale of European Cities of Culture, there is a wealth of knowledge that cannot be captured easily. The research uncovered many strongly held viewpoints of people who were directly involved in one or more of the European Cities or Capitals of Culture, and those who observed from the sidelines. Attitudes (and even perceived facts) sometimes contradicted one another. Whilst some felt an experience to be positive and problem-free, others expressed disappointment and pointed to major weaknesses of that same experience. We recorded faithfully what respondents said and felt and, in the alchemy of combining all the responses to questionnaires and in interviews, assessed relative views and made observations. Terms such as success and failure, strong and weak, good and poor are value judgments, and in this study we have relied on combinations of such judgements, many of which have been quantified, to offer a snapshot of what took place in the European Cities of Culture over a ten-year period. We have tried to check and validate facts wherever possible and to seek balance when contradictory views emerged. The data contained in the report were gathered from many different sources, and if certain information or detail is lacking, it was because we received no responses to our repeated requests, or what we did receive was incomplete and, in some cases, inaccurate when compared with other data. We have used our best endeavours to locate and use accurate information, but apologise for any inadvertent errors that have been made. There were many individuals who supported and assisted this study. We owe a debt to the respondents and interviewees who committed time to respond to our questions and to offer views, and apologise for our persistence with e-mails and telephone calls. Mr. Antonios Kosmopoulos and Mr. Harald Hartung, the former and present Heads of Unit, as well as other staff working within the Directorate-General for Education and Culture of the European Union, offered advice. Analysis and texts received from Greg Richards (Tourism Perspectives), François Matarasso (Social Perspectives) and Stuart Gulliver (Economic Perspectives) were essential to the compiling of this report. Thanks also to Eric Corijn, Rod Fisher, Beatriz Garcia, Brit Holtebekk and Gottfried Wagner who, as external advisers, offered suggestions at various points of the study, and to Karyn Allen for her help in analysing data on sponsorship. The project team for this study had to deal with heavy workloads and pressures, and devoted long hours with diligence to compile reports and develop the database. In particular, I must record the enormous efforts of Susie Jones, Research Manager and Caspar Will, Senior Researcher. Their relentless work that involved crowded travel schedules, the recording and analysis of endless data, and the meeting of near impossible deadlines was handled with skill and persistence, and is a tribute to the dedication of the many thousands of people who have worked on the programmes of European Cities and Capitals of Culture over the years. We hope that this report will make a contribution to an important European cultural project that has attracted substantial interest and attention. Robert Palmer Page 6 Palmer/Rae Associates, Brussels European Cities and Capitals of Culture Preface and Acknowledgements Palmer/Rae Associates, Brussels Page 7 Table of Contents European Cities and Capitals of Culture PART I Table of Contents PREFACE AND ACKNOWLEDGEMENTS 6 SUMMARY OF REPORT 14 Introduction 14 Methodology 14 History, Procedures, Designations 14 Aims and Objectives 14 Operational Features 14 Cultural Programme and Impact 15 Infrastructure 17 Communication, Promotion and Media Response 17 European Perspectives and Dimension 18 Sharing the Title 18 Economic Perspectives 19 Visitor Perspectives 20 Social Perspectives 21 Monitoring and Evaluation 21 Legacy and Long-Term Effects 21 Keys to Success 22 Cultural Months 22 The EU Community Action 22 City Reports 23 Conclusions 23 Recommendations 24 Organisation of the Report 24 RESUME DU RAPPORT 25 Introduction 25 Méthodologie 25 Origines, procédures et nomination 25 Motivations et objectifs 25 Caractéristiques opérationnelles 26 Programme culturel et impact 26 Infrastructure 28 Communication, Promotion et Réaction des Médias 29 Perspectives européennes 29 Le partage du titre 30 Perspectives économiques 30 Page 8 Palmer/Rae Associates, Brussels European Cities and Capitals of Culture Table of Contents La perspective des visiteurs 31 Perspectives sociales 33 Contrôle et évaluation 33 Conséquences et effets à long terme 33 Clés du succès 34 Mois culturels 34 L’action communautaire 35 Rapports de la ville 35 Conclusions 35 Recommandations 36 Organisation du rapport 37 INTRODUCTION 38 Background 38 Terms of Reference of the Study 38 Timing and Length of the Study 39 Methodology 39 History, Procedures, Designations 41 Submission of Nominations 43 European Cities of Culture/European Capitals of Culture 44 European Cultural Month 44 The Choice of Cities 1995-2004 44 AIMS AND OBJECTIVES 47 Main Motivation 47 Mission and Objectives 47 Consultation 50 Advice 51 OPERATIONAL FEATURES OF DESIGNATED CITIES 52 Governance Structures and Boards 52 Problems and Issues 53 Advice 54 Involvement of Public Authorities 54 Advice 55 Operational Structure 55 Problems and Issues 57 Advice 58 CULTURAL PROGRAMME AND IMPACT 60 Introduction 60 Location and Timing 60 Programme Themes, Orientations and Coherence 61 Project Selection 62 Scale of the Programme 63 Programme Management 63 Programme Range 64 Art and Culture 64 Palmer/Rae Associates, Brussels Page 9 Table of Contents European Cities and Capitals of Culture Tradition and Innovation 65 Cultural Institutions and Independent Groups 65 Public Space 66 Blockbusters and International Stars 67 Community Development, Participation and Inclusion 67 Support for Local Talent 68 Spin-off 69 Programme Expenditure 69 ECOC as an ‘Event’ or a ‘Process’ 71 Isolated vs. Integrated Planning 72 Problems and Issues 72 Advice 72 INFRASTRUCTURE 74 Objectives 74 Types of Infrastructure 74 Expenditure 75 Organisation 76 Results 76 Problems 77 Advice 78 COMMUNICATION, PROMOTION AND MEDIA RESPONSE 79 Objectives and Targets 79 Tools for Communication and Promotion 80 Press Coverage 83 Expenditure 83 Staff and Organisation 84 Problems 84 Advice 84 EUROPEAN PERSPECTIVES 85 Approaches 85 Scope and Scale 87 Third Countries 87 Problems 88 Advice 89 Sharing the Title 89 Future 92 ECONOMIC PERSPECTIVES 93 Operating Expenditure 93 Overall Financial Performance 95 Capital Expenditure 96 Total Expenditure 97 Income 98 The Private Sector 99 Sponsorship 100 Page 10 Palmer/Rae Associates, Brussels European Cities and Capitals of Culture Table of Contents Economic Aims and Objectives 102 Economic Benefits 103 Economic Impact and Economic Importance 106 ECOC and ‘Megaproject’ Economics 106 Advice 107 VISITOR PERSPECTIVES 108 Introduction 108 Visitor Related Objectives 109 Visitor Numbers 110 Long-term Changes in Visitor Numbers 113 Types of Visitors 117 Socio-demographic Profile 119 Motivation to Visit ECOC 121 Impact on Cultural Visits 122 Visitor Expenditure 123 Marketing 124 Collaboration between the Cultural and Tourism Sectors 125 Image Impacts 126 Trends and Major Issues 127 Future Approaches 128 Methodology for Monitoring and Evaluation 129 Advice 131 SOCIAL PERSPECTIVES 132 Introduction 132 Access Development 132 Cultural Instrumentalism 133 Cultural Inclusion 134 A Framework 135 Social Aims and Objectives 136 Outcomes 137 Problems 139 Monitoring and Evaluation 141 Possible Future Research 141 Advice 142 MONITORING
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