BID PROCESS ANALYSIS Stage 1 Report DRAFT
CITY AND COUNTY OF CARDIFF DINAS A SIR CAERDYDD
COMMITTEE OF THE COUNCIL 10 May 2001
CABINET PROPOSAL AGENDA ITEM:
European Capital Of Culture 2008
Background
1. Council, at its meeting on 5 April 2001, agreed to :
· note the progress made as detailed in the report as part of Cardiff’s bid for European Capital of Culture 2008; · seek a partnership commitment from the National Assembly for Wales that £500,000 be allocated to the Council in its bid for the Capital of Culture 2008; · a matched contribution of £500,000 by the Council towards the bid preparation; · demonstrate Best Value throughout its bid and this would be carried out on a transparent and open basis; · the Deputy Mayor’s proposal that the preparation of the Council’s bid be extended to include input from other service areas which would add value to the process.
2. The Stage 1 Report (Draft for Consultation) has been received from the Consultants.
· The Bid
The report supports the Council’s view that cultural, economical and social potential arising from Cardiff being nominated for the capital of Culture justifies the submission of a bid. Moreover, if the bid is successful, the benefits would be enormous. To succeed, it needs the complete buy-in of the public, private, voluntary and cultural sectors and requires supremely strong leadership.
· Bid Management
The report concludes that given the urgency to make progress, the Council, in partnership with such key stakeholders should establish a Project Steering Group (possibly forming a limited company). The Consultants have suggested that to meet timescale deadlines it will be necessary to consider seconding
Page 1 of 7 officers and/or appointing specialist consultants to undertake the task of preparing the bid. Within that process, further consideration could be given to the most appropriate vehicle to take forward the necessary work should Cardiff’s bid succeed.
· Next Stages
In summary, the report recommends the following actions by the Council:
(i) agreement of the conclusions of the Stage 1 Report; (ii) the Council hosts a stakeholders meeting to seek the views of the stakeholders regarding the process (the Consultants would provide presentation if required); (iii) with the support of the Council and stakeholders, the Consultants be instructed to continue Stages 2 & 3 of the bid process and outline Business Plan by 31 May 2001; (iv) confirm the level of resources for the bid process by 31 May 2001; (v) agree the leadership and composition of a Project Steering Group by 31 May 2001; (vi) agree the decision-making powers and fiduciary powers of the Project Steering Group by 31 May 2001; (vii) with all these measures in place, agree to hold a press conference on 1 June 2001 to formally announce the bid for European Capital of Culture 2008.
The Issues
3. The closing date for bid applications to the Department of Culture, Media and Sports is 31 March 2002. The key decisions and issues are outlined in the conclusions and recommendations of the consultants in the Stage 1 Report as detailed in above.
4. In making a decision on the recommendations for Bid Management, consideration should be given on the merits of establishing a Trust, a company limited by guarantee, or a company limited by guarantee with charitable status. The consultants advise that it is not generally appropriate for an organisation which aspires to operate and manage an arts project or to trade to opt for Trust status, and that the most appropriate vehicle to take forward the bid would be a company limited by guarantee for which charitable status would be sought (the latter process usually taking a minimum of six months). To meet the timescales the Council could purchase an, “off the shelf company limited by guarantee”, to use in the interim period whilst the final vehicle with charity status is processed.
5. If the proposal is agreed, a decision needs to be taken as to Council representation within the company/trust. Once this has been decided, a meeting of the stakeholders should be arranged in order that they can nominate representatives for the independent Project Steering Group, set up a company limited by guarantee the Directors of which would be representative of the stakeholders and then proceed with an application for the company to have charitable status. The composition and leadership of the independent Project Steering Group, and the company needs to be agreed by 31 May 2001, together with the protocol and Page 2 of 7 agreed procedures to draw down on the funding put in place jointly by the Council and National Assembly for Wales of £500,000 each. Both Project Steering Group and the company itself would progress all areas of the bid application up to the 31 March 2002. The funding provided and draw down allowed to be used for revenue expenditure only, no expenditure to be expended on any capital items.
6. An alternative arrangement could be for the Council itself to provide and undertake the operation to bid for the European Capital of Culture 2008.
7. In tandem with the above, the Consultants should be instructed to continue Stages 2 and 3 of the bid process and Outline Business Plan for completion prior to 31 May 2001.
Page 3 of 7 ADVICE
This report has been prepared in consultation with Corporate Managers and reflects their collective advice. It contains all the information necessary to allow Members to arrive at a reasonable view, taking into account the advice contained in this section.
The Corporate Manager dealing with this report is Tom Morgan.
Legal Implications
This matter will require detailed legal advice on implementation of the recommendations and establishment of the proposed company. The legal issues are summarised below.
Formation of Company
Local authorities have a variety of specific powers enabling them either to form or acquire shares in companies. They should not, however, create a company with the intention of avoiding any statutory controls or to perform some function which the authority must perform itself. The Council has powers under section 144 and 145 of the Local Government Act 1972 to encourage visitors and to provide conference and other facilities and to provide or arrange for the provision of entertainment and to encourage others to do so. Also, new powers under the Local Government Act 2000 to promote the social, environmental and economic well-being of the area have just been brought into force. The general purpose of promoting Cardiff as described in the report would fall within these powers.
The Local Government and Housing act 1989 (LGHA 1989) effectively restricts the Council’s freedom in terms of establishing companies and their subsequent operation. If any company established falls within one of the definitions, i.e. controlled or influenced companies, certain financial and operational restrictions will apply which would limit its activities. In particular, capital finance restrictions would be applied in the same way as they apply to the Council. It would be preferable if the company is to be involved in activities to which capital controls might apply, to ensure that the company formed is not controlled or influenced, and controls over the use of funding are maintained through grant conditions.
Other issues
A company is distinct from the local authority itself, even where the authority has control. The directors of the company owe a fiduciary duty to the company, and not to the authority itself. Accordingly, it is their duty to act in the best interests of the company, even where that conflicts with the interests of the authority. Members or officers appointed to boards of companies must comply with the provisions of company law applicable to such companies when matters are before the Council.
Officers or members who agree to become directors of companies, or trusts as local authority representatives thereby take on duties and responsibilities which may give rise to legal liabilities which are distinct from those as members of the Council.
Non-charitable trusts may be regulated them the LGHA 1989,s72, and subject them to the same rules as companies. This provision applies to any non-charitable trusts Page 4 of 7 subject to the influence of a local authority. ‘Influence’ is defined by reference to the same criteria as apply when determining whether a company is subject to local authority influence. Again, any trustee would owe his/her obligations to the trust rather than to the authority which has appointed him. However, the rules of limited liability would not protect an officer or member appointed as a trustee. Charitable trusts may be registered with the Charity Commissioners. They cannot, however, be brought within the controls of the LGHA 1989, Pt V.
The formation of a company, or charitable trust as proposed within this report would appear to be within the powers of the Council. However, the form of the company or trust will need to be considered with some care because of the statutory controls upon the Council which may affect its finances and the way in which the Council may exert any influence on the project. In addition any members and officers who are appointed to the company or trust will need to take into account the liabilities and responsibilities that attach to them, and the limitations attached to any indemnities provided. Members appointed to the company by the Council will receive further advice in accordance with previous practice. The Council will wish to ensure that the Memorandum and Articles of Association of the company or trust are property drafted to reflect or there is in place an agreement to secure any controls which they may need to satisfy the statutory requirements or to ensure that their requirements for the project are met.
The Project Steering Group
Until such time as the company or trust is formed members and officers who purport to act with others, as a shadow board will be personally liable for any liabilities they take on, subject to any lawful indemnities provided. This report proposes the establishment of a company forthwith to minimise such risk and members and officers will require specific advice on proposed actions during this period.
Secondment of Staff
Section 2 of the Local Government Act 2000 authorises the Council to provide staff to any person where they consider that is likely to achieve any one or more of the following objects:- a) the promotion or improvement of the economic well-being of their area b) the promotion or improvement of the social well-being of their area, and c) the promotion or improvement of the environmental well being of their area.
This is however subject to the limitations of the 2000 Act and the Local Authorities (Goods and Services) Act 1970.
General legal advice
Any decision taken by Members must be fully informed and must take into account all material matters and discount anything which is irrelevant. Further discussions must be property motivated and reasonable and must have regard to the Council’s fiduciary duty to its taxpayers. Members therefore need to satisfy themselves that this report contains all the information which they need to come to a proper decision.
Page 5 of 7 Financial Implications
The Council has already agreed the contribution towards the bid preparation. Any expenditure or receipt regarded as capital of any company or trust falling within the definitions outlined under “Formation of company” would count against the Council’s capital control regime.
Consequences
The European stage provides significant direct economic, tourism and cultural impact for the whole of Wales with Cardiff as its Gateway and this bid advances the positive profile of Cardiff and Wales in Europe.
BYRON DAVIES Chief Executive 24 April 2001
Background Papers : Report to the Committee of the Council 5 April 2001 – Cardiff European Capital of Culture.
CABINET PROPOSALS
Committee of the Council agree:
(1) the conclusions and recommendations of the Consultants Stage 1 report and implement the actions required in the next stages as detailed in Paragraph 2 and in the full Consultation Report (Appendix A);
(2) the level of Council representation on a Project Steering Group/Company/Trust limited by guarantee, subject to advice on the implications of creation of a controlled or influenced company;
(3) to consider the formation of a company limited by guarantee with a view to the same applying for charitable status at an appropriate stage, or the alternative for the Council to provide and undertake the operation to bid for the European Capital of Culture;
(4) that the Chief Executive in consultation with the Lord Mayor nominate on behalf of the Council, directors to any company/trust so formed;
(5) to arrange as necessary, and reasonable, the secondment of appropriate and experienced staff from the Council;
(6) a £500,000 contribution from the Council;
(7) that both protocol and agreed procedures are required to draw down revenue spending only from the total monies available prior to the company or Council operating and ask that these to be prepared for agreement with the National Assembly;
Page 6 of 7 (8) to arrange a meeting with the stakeholders, with a view to agreement on the formation of a Project Steering Group to act in shadow for a company limited by guarantee and their nominations for representation on the same. Agree the composition of the Project Steering Group by 31 May 2001;
(9) that the Chief Executive in consultation with the Lord Mayor be authorised to instruct the consultants to continue with Stages 2 and 3 of the Bid Process Analysis and Outline Business Plan, with a completion date of 31 May 2001.
Page 7 of 7 EUROPEAN CAPITAL OF CULTURE 2008: BID PROCESS ANALYSIS
Stage 1 Report
DRAFT FOR CONSULTATION
Prepared by: McCann Matthews Millman with Artservice
April, 2001 CARDIFF COUNTY COUNCIL- EUROPEAN CAPITAL OF CULTURE 2008: Final Draft Stage 1 2 Bid Process Report
1. INTRODUCTION
On 3 March, 2001, Cardiff County Council appointed McCann Matthews Millman and Artservice to carry out a bid process analysis and outline business plan to help inform the Council and its partners’ thinking with regard to a potential bid by Cardiff to be nominated European Capital of Culture 2008. The Council’s Brief proposed a two-stage Study, on which our successful Tender was made:
Stage 1
· review of the strategic context for the bid · consultation with potential stakeholders, partners and the cultural sector in Wales · review of the competition and critical appraisal of Cardiff’s potential bid · review of potential non-EU partner cities · appraisal of options for the structure, content and character of the bid
Stage 2
· recommendations for structure and project management of the bid · consideration of developmental activities 2002 - 2007 · preparation of outline business plan for the bid · review of potential funding sources · review of implications for audience development · exit strategy
At the Commissioning Meeting for the study on 14 March, 2001, convened and attended by the Head of Marketing and Tourism, Arts and Events Manager and the Consultants, it was recognised that political urgency lay in establishing, as a priority first step, the overall strategy for the bid process. This could then be discussed by the County Council and such key stakeholders as the National Assembly for Wales, Arts Council of Wales, Sports Council of Wales, Cardiff Marketing Ltd., Wales Tourist Board and Welsh Development Agency and an agreed position document provided for the National Assembly by the end of March.
It was therefore agreed to restructure the study itself into three stages:
Stage 1
· review of the strategic context of the bid, especially DCMS criteria · preliminary critical SWOT appraisal of Cardiff’s potential and current position of chief competitors · review of bid management options and recommended option · provision of details of practical implications and forward timescale
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Stage 2
· consultation with potential stakeholders, partners and the cultural sector in Wales · review of potential non-EU partner cities · appraisal of options for the structure, content and character of the bid
Stage 3
· consideration of developmental activities 2002 - 2007 · preparation of outline business plan for the bid · review of potential funding sources · review of implications for audience development · exit strategy
This report is, therefore, of the revised first stage of the study.
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2. STRATEGIC CONTEXT
2.1 UK: Department for Culture, Media and Sport
2.1.1 Capital of Culture criteria
The Capital of Culture programme is administered by the Department for Culture, Media and Sport (DCMS). DCMS Criteria and Information for Applicants state the following, the criteria being set out below accompanied by the relevant question that must be addressed within bid documentation:
· Clearly defined objectives for a year long programme, and the ability to deliver them
· What is your concept of ‘culture’ for your city?
· The ability to create an event of excellence with maximum impact for all its residents and visitors
· What are your themes and objectives?
· A programme of events which will increase awareness of and participation in cultural opportunities, particularly amongst the young and within community groups, and contribute to the promotion of social inclusion
· A programme of events which presents opportunities for learning and development to individuals and communities
· What organisations will be involved?
· How will you ensure local commitment and participation, particularly amongst traditionally under-represented groups?
· The ability to display the City’s Cultural wealth within a European context and encourage other European states’ participation
· How does your concept of ‘culture’ fit within a European context?
· How will you involve people from other parts of the UK, Europe and the wider world?
· The ability to ensure co-ordination and full partnership between stakeholders and investors
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· The financial resources to deliver the above, or a well-developed plan to secure these
· What is the scale of your budget and how will resources be provided?
· The infrastructure to deliver the above or the ability to create it
· What is the nature of the city’s cultural/transport/tourist infrastructure and how would these be utilised or developed in the delivery of the programme?
· A well-developed tourism strategy for the year, and the infrastructure to support it
· How will the event utilise the potential of the historic heritage, urban architecture and quality of life of the city?
· A well-developed media strategy which will promote the capital of Culture at home and abroad
· What innovative/imaginative means would you employ to increase dissemination of various events?
· A programme of events which is sustainable both financially and in terms of projected attendance figures, and the ability to translate this into long lasting benefits, both cultural and economic
· What do you envisage as the long term outcome of the event?
The Capital of Culture programme replaces the current Cities of Culture scheme from 2005. Cities of Culture to that point have been designated as follows:
2001: Rotterdam and Oporto 2002: Brugge and Salamanca 2003: Graz 2004: Genoa and Lille
The first three countries to host a Capital of Culture will be:
2005: Ireland 2006: Netherlands 2007: Luxembourg
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2.1.2 Local cultural strategies
DCMS, the Government department responsible for managing the Capital of Culture bidding process, has separately issued guidance to English local authorities with the expectation that every authority will, by the end of 2002, have developed a Local Cultural Strategy1. 14 authorities have already completed the pilot programme. Clearly, therefore, those English towns and cities bidding for nomination as Capital of Culture will do so with the benefit of a cultural strategy being in place to underpin their claim. While the DCMS holds no sway in Wales with regard to Local Cultural Strategies, there would be clear sense in Cardiff making as rapid progress as possible in developing its own version alongside preparation of its bid for Capital of Culture. Indeed, a Cardiff bid that does not have a foundation in a local cultural strategy may appear, in comparison with English bids, short of credibility. However, should a strategy be developed, its implementation plan must not be predicated on a successful bid for Capital of Culture. DCMS guidance has been sought on how non-English bidding cities should deal with this issue.
DCMS takes a very broad approach to its definition of “culture” and it is important to acknowledge that a Cultural Strategy embraces far more than simply the “arts”.
DCMS defines culture as including:
· arts · sports · libraries · museums · children’s play · parks · tourism · countryside recreation
DCMS is also concerned that culture should relate directly to broader policy areas, including:
· public health · community safety · social exclusion · environmental sustainability · regeneration · lifelong learning and the information society
Current guidance from DCMS is that local authorities might wish to choose an approach to the development of a Local Cultural Strategy that is thematically based, i.e. one which demonstrates the linkages across broad policy areas, or one that is
1 Final guidance is contained within the document Creating Opportunities, published in February, 2001
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service-specific. The former approach is favoured with action plans for individual services being one of the principal outcomes of the process.
The process itself is seen to consist of seven stages within a timeframe spanning 8 - 18 months depending on the size of authority and complexity of the services.
2.1.3 Future strategy
In March, 2001, the Government published its Green Paper for the future of the cultural sector in England: Culture and Creativity: the next ten years. It notes that the creative industries sector is expanding at the rate of 16% per annum and has, as an over-arching theme, the ambition to free the creative potential of individuals. It prioritises the relationship between the arts and education through proposing the creation of Creative Partnerships made up of cultural organisations, businesses and educational institutions. It announces the development of Culture Online and emphasises the important role the Internet will play in maximising individuals’ engagement with culture. Further significant objectives surround sustaining artistic and creative excellence and widening participation and access. The greater development of incubator units for start-up businesses in the cultural sector is encouraged. The document acknowledges the key role local authorities play in ensuring the cultural well-being of their communities2 and reiterates the importance of their developing local cultural strategies which, in turn, will feed into regional strategies being produced by the Regional Cultural Consortia.
2.2 Wales
2.2.1 A Culture in Common
In 2000, the National Assembly for Wales’ Post-16 Education and Training Committee issued its report setting out a pro-active policy for the arts. Responsibility for the cultural sector has now been transferred to a Culture Committee with a dedicated Culture Secretary and this may mean that there will be changes in policies or priorities from those set out below.
The ambitions of the policy are for Wales to be:
· a place where our young people want to live and work and where creativity is commonplace · a country which is exciting, bursting with cultural energy and artistic talent · a country where culture and the arts are valued
2 The Green Paper estimates that local authorities spend nearly £2 billion on culture, leisure, sports and tourism services
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These ambitions are set within the context of the Assembly’s vision for the future of Wales, “Better Wales” built around the three major themes of sustainable development, tackling social disadvantage and equal opportunities in order to:
· promote active citizenship, creativity and entrepreneurship · raise the international profile and influence of Wales and establish it as a first- class place to live, study, visit and do business · extend access to and awareness of the Welsh language, culture, heritage and sporting opportunities
The Committee adopted an holistic definition of culture:
“Culture consists of all distinctive spiritual and material, intellectual and emotional features which characterise a society or group”
Five priorities for arts and cultural policy were identified:
· young people and opportunities afforded them through education and training · communities and the opportunities afforded them not least in terms of social regeneration · cultural diversity and the opportunities provided for its nurture and growth · creative industries and the opportunities provided for their growth · standards and the opportunities provided for the highest standards to be attained at every level
The report urged the establishment of Cymru’n Creu, a cultural consortium formed from the Assembly Sponsored Public Bodies in order to:
· provide a forum for the discussion of particular opportunities or problems; to support action on the basis of partnership; and to provide an open information channel between the bodies concerned, the Arts Council and the Assembly Secretary
· provide regular occasions for each body to examine the scope for aligning its forward plans with those of one or more of the others to achieve stronger synergy in support of lifelong learning; cultural development; inward investment; export promotion; and the development of tourism
· ensure that up-to-date, credible and useful data on the creative industries is made available as soon as possible
· ensure that new technologies are used to better effect in joint planning; joint marketing; and sales promotion
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· keep the economic impact of the cultural sector under continuing review; to research areas of weakness; and to provide technical assistance to expanding and developing SMEs in the sector
· assist in accelerating the input of the creative industries to partnership initiatives under Objective 1 and the ERDF
2.2.2 Cymru’n Creu
Ceri Sherlock’s Commentary on Culture and the Arts in Wales, a report which was noted by the Post-16 Education and Training Committee, argues strongly for the formation of a Cultural Consortium - Cymru’n Creu. The report offers an extended definition of culture:
“Culture is about identity, history, diversity, education, traditions, symbols, language, innovation and shared experiences. It is a society’s narrative. It is shaped by our socio-economic histories, by our natural and built environment, by our beliefs, values and aesthetics. It is about science and technology - invention and creativity. It is about communication - publishing, broadcasting - information, perception and practice. It is what has fallen to us as our heritage, what we wish to preserve, and how we create new horizons and new visions for the future. It is the process by which we acquire and share our sets of values in society and how we share and reveal them to others. It is our past and future heritage and what we deem to be valuable to pass on. ‘It is society’s conversation with itself overheard by others’. We are both custodians and creators of our Culture. It therefore includes a broad range of activities such as sport, heritage, play, leisure, tourism, language, the worlds of our imagination, the creative industries and the arts. Culture is as much about ‘becoming’ as ‘being’.
The report keenly advocates the benefits of cultural tourism, identifying it as a key factor in sustainable job creation, in rural and urban regeneration, in active citizenship and in defining the distinctiveness of Wales and its sense of national identity.
Cymru’n Creu held its first meeting on 28 February with representation from:
· Arts Council of Wales · Sports Council of Wales · National Museums and Galleries of Wales · National Library of Wales · Welsh Books Council · Brwdd yr Iaith Gymraeg · Council of Museums in Wales · Wales Tourist Board
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· Welsh Development Agency · Education Learning Wales · Welsh Local Government Association · S4C · Sgrin · BBC Wales · HTV Wales
2.2.3 Cultural tourism strategy
The Wales Tourist Board is currently developing a Cultural Tourism Strategy. This will be presented to the Board in mid-May, 2001 and then issued for consultation.
2.3 Cardiff
2.3.1 Cultural strategy
Cardiff has no cultural strategy per se although the County Council’s 1998 Arts Strategy, which included an assessment of the economic impact of the sector, remains in force.
2.3.2 Economic development strategy
Cardiff County Council is finalising an Economic Development Strategy for the period 2001 - 2006. The Strategic Statement for Cardiff is for:
the creation of a vibrant, competitive and sustainable European Capital City with a modern, innovative and diverse industrial base, complemented by a highly skilled and flexible workforce which is at the centre of a knowledge based regional economy
The Strategy notes that the County Council and its partners were praised by the Prime Minister on a recent visit when he said that Cardiff was a ‘fantastic go ahead city’. The Council has worked to improve socio-economic conditions and opportunity for residents and businesses across the City, very much within the framework set by the UK Government, the European Union and latterly the National Assembly for Wales together with private and public sector partners. Importantly, the Strategy recognises that, as the Capital City for Wales, Cardiff is also the engine for economic growth in the south-east Wales sub-region and that it conveys economic and social benefits far beyond its administrative boundaries. The true extent of the City’s transformation from old industrial powerhouse to new dynamic service centre is, perhaps, best portrayed through the redevelopment of
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Cardiff Bay, including investment in the £200m Cardiff Bay Barrage, a development which has created Europe’s largest City-centre waterfront with more than eight miles of frontage for hotels, leisure facilities, businesses and new residential areas.
The Strategy confirms the Council’s commitment to a partnership approach to economic development. Existing and future partners include: the National Assembly for Wales, Welsh Development Agency, South East Wales Economic Forum, South East Wales TEC, Wales Tourist Board, Business Connect, Careerpaths, Business in Focus, Employment Service, Cardiff Chamber of Commerce, Cardiff’s University Colleges, Further Education colleges and local authorities. The Council is also exploring new initiatives to foster international links with other cities and regions in the UK, mainland Europe and North America which can provide a range of potential benefits, both cultural and economic. This has been demonstrated by the Council’s recent membership of the Cities of the Isles and Atlantic Arc initiatives and International Cities Alliance.
The Strategy identifies a number of priority sectors for development, including Film, Television and Multi-Media and Leisure and Tourism.
Within the Film, Television and Multi-Media sector, the Strategy notes that Cardiff is the second largest media centre in the UK with a cluster of dynamic support industries, including animation and with huge potential for further development. The Council will promote the development of specialist business support services for the sector and work with local education institutions to encourage the development of a film school in Cardiff.
The Leisure and Tourism sector in Cardiff provides substantial economic and cultural benefits to the local economy, providing over 12,000 jobs and has led to Cardiff becoming one of the UK’s top ten destinations for tourists outside of London. The Strategy identifies that the sector has benefited considerably from the staging of numerous major international events in Cardiff, including the 1999 Rugby World Cup, Network Q Rally and the staging of the FA and Worthington Cup Finals in the Millennium Stadium until at least 2004.
Specific flagship projects championed by the County Council include:
· a proposal to the Wales Tourist Board to make Cardiff a Strategic Tourism Destination with a view to receiving £2m to invest in local infrastructural projects
· the development of the International Sports Village
· protection of the future development and integrity of the proposed Wales Millennium Centre in Cardiff Bay by purchasing the designated site, holding it until the commencement of works and preventing its sale on the open market
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· progression of works for the conservation and enhancement of Cardiff Castle as an attraction of international significance, following the successful bid for a grant of over £6m from the Heritage Lottery Fund
2.4 Capital of Culture
“The year 2008 should mark a lasting change in the city’s standing in its own eyes, throughout the UK and on the Continent. It should use this opportunity to develop and add to its cultural assets, whether building something new on a traditional base, or creating something completely new.
The bid should demonstrate the potential to achieve long-lasting benefits for the local community and for the wider European community. This will encompass cultural experiences, learning opportunities, employment opportunities, new growth and regeneration. The winning city will deliver an outstanding year throughout 2008 and a sustainable legacy for the future.
Only one city will possess the exceptional qualities which will allow it to go forward to Europe as the UK’s nomination for the title.”
Source: DCMS Information for Applicants
As a consolation prize of significance, shortlisted candidate cities will be awarded a mark of excellence entitled a “Centre of Culture” award to reflect their cultural wealth and potential and their plans to build upon both.
In reviewing the potential objectives for Cardiff in being nominated as Capital of Culture, it is helpful to start from the position of what strategic changes and improvements it would be desirable to have achieved from the deadline date for submission of the bid (31 March, 2002) to the end of 2008, the year of Capital of Culture for the UK. These might be both qualitative and quantitative, for example:
· a strong, confident and inclusive cultural sector with comfortable interplay between the professional, voluntary and community sectors
· a sustainable and growing cultural sector acknowledged as providing excellent returns for the investment of public and private sector support
· acknowledgement of how the joined-up Team Wales approach to public interventions can achieve international success
· a step-change in satisfaction levels for Cardiff’s quality of life, with a top three ranking in the UK
· enthusiastic, popular support for both traditional and new expressions of culture
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· a cultural sector characterised by a multi-cultural approach that celebrates diversity
· culture embedded at the heart of local authority policy-making
· a nation whose bi-lingual culture is respected and celebrated
· the name of Cardiff as being synonymous with a vibrant youth culture, as demonstrated by the recent Cardiff Marketing Ltd re-branding research
· the completion of Cardiff’s position on the European and international map
· acknowledgement that culture is meaningful and beneficial to all Cardiff citizens
· development of the new CCC/BBC partnership initiative, Cardiff International Festival of Musical Theatre from the inaugural Festival in 2002 into one of the key events in the UK and Europe
· Wales Millennium Centre, as Cardiff’s newest cultural asset, achieves international recognition as a world-class venue and new home for Welsh National Opera
· development of Cardiff Bay and Barrage as a destination for major tourism and events, including watersports
· further development of St David’s Hall as the home-base of the BBC National Orchestra of Wales and a strengthened International Orchestral Concert Season
· strengthening of the New Theatre as Wales’ leading presenting theatre for drama through the expansion of partnerships with Clwyd Theatr Cymru, RSC, Royal National Theatre, using the centenary year of 2006 as a special focus
· the International Sports Village providing unparalleled opportunities for spectators and participants alike
· the further international expansion of Welsh film, media and animation success through the work of SGRIN
· Millennium Stadium develops as a world-class venue for sports and events and an international icon of Cardiff
· Cardiff as a major Events destination (eg Network Q Rally, Cardiff Castle concerts) In addition, the development period to 2008 offers opportunities for the evolution and expansion of existing high-profile events, for example:
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· Cardiff Festival · Calennig · Welsh Proms · Celtic Food and Drink Festival · Young Welsh Singer Competition · Cardiff Singer of the World · Wales International Film Festival
while a number of new initiatives already being considered could form part of the bid, for example:
· Wales International Artist of the Human Form competition · Cardiff International Jazz Festival · exploration of ideas around the influence of Roald Dahl, e.g. a Children’s Theatre Festival · achievement of sustainable usage of the Old Library, perhaps through creating a Civic Museum · a major community-based project
as could landmark projects elsewhere in Wales, e.g.:
· National Botanical Gardens · new arts venues in Newport and Wrexham · National Industrial Museum in Swansea
NOTE: These are examples only and these areas will be developed further.
There are a number of routes that might lead to the achievement of all or some of these outcomes:
1. Cardiff: Gateway Wales - an approach that focuses on Cardiff within Wales as the gateway to culture and for cultural tourism throughout the country, linked to the new Cultural Tourism Strategy of the Wales Tourist Board. The bid would seek the involvement of local authorities in such places as Newport, the Vale of Glamorgan and Swansea and there would be clear benefit opportunities for cultural organisations across Wales in being associated with the bid. DCMS guidance confirms that a bidding city may choose to involve its surrounding region in its cultural programme although, in principle, a consortium bid from geographically separate towns or cities would not be admissible.
2. Cardiff: Gateway Celtic and European Minority Cultures - an approach that would incorporate strands specifically celebrating Welsh culture (Royal National Eisteddfod hosted by Cardiff, Urdd Eisteddfod, school eisteddfodau, etc) and showcase the culture of such regions and languages as Brittany, Catalan and
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Gaelic. Exchange opportunities with a European twin city could be explored during the 2002 - 2007 development period 3. Cardiff: Gateway Young People - an approach that would derive from Cardiff’s status and branding as Europe’s youngest capital city with strands to develop and celebrate the involvement of young people, particularly in theatre, music, dance and new media
4. Cardiff: Festival City - an approach that would optimise the benefits of existing and planned festivals (Calennig, Cardiff International Festival of Musical Theatre, Cardiff Singer of the World, One Tribe, Welsh Proms, MAS, Cardiff Festival) and which added new events (eg Welsh Fashion Week, National Student Drama Festival, Independent Dance Festival, Cardiff International Festival of Musical Theatre, Cardiff International Jazz Festival)
Whichever of these or other routes is selected, while it would be legitimate for Cardiff’s bid to be reflective of the culture of Wales, it cannot be an approach based on a consortium of local authorities.
2.5 Project vision
The chosen approach should be seen to be heading towards an over-arching vision for the Capital of Culture programme, a vision that might be summarised as:
For the people to show the UK, Europe and the world that Cardiff, Capital of Wales, is the best city to live, work in and visit, exploding with creative energy, proud of its distinct identity and ready to take the lead in celebrating the rich diversity of the nation’s culture.
The bid process, development period, Year of Culture itself and the legacies it inspires will enable Cardiff to:
· build upon its undoubted cultural strengths in such sectors as music, dance, architecture and sport
· address and improve potential in such weaker sectors as drama, the visual arts and cultural diversity
· set the national pace for the contributions culture can make to healthy living, social inclusion, neighbourhood renewal, community regeneration and lifelong learning
· enmesh culture into policies aimed at developing communities and individual growth
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· establish, monitor and achieve quality threshold benchmarks that set new standards of excellence for cultural activity in the UK and Europe
· massively increase opportunities for people to take part in creative activities for learning, pleasure and social engagement
· reap very significant direct and indirect economic and employment benefits and spread these advantages to other parts of Wales
· fundamentally challenge and forever change stereotypical perceptions of the city as it becomes positioned as Europe’s youngest and most exciting capital
· lead Wales forward through the success of its capital
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3. SWOT ANALYSIS
This is a preliminary analysis including examples of arts related cultural activity. However there are other areas of cultural activity that will need to be explored.
Strengths Weaknesses Cultural policy and track-record Cultural policy and track-record
Commitment to the bid from Lord Mayor Scepticism of local organisations concerning CCC commitment to cultural Regional and national capital excellence/development
Cardiff County Council Arts Strategy No CCC cultural strategy
Welsh branding Poor image of Cardiff remains amongst UK decision-makers Existing cultural facilities/organisations Existing cultural facilities/organisations
Academi Cymreig Centre for Visual Arts closed - no major BBC National Orchestra of Wales visual arts venue in the city CADMAD Cardiff Bay Art Trust No regional theatre company with Cardiff Castle: major visitor attraction and permanent base open-air venue Cardiff International Arena: capacity to stage No indigenous large-scale ballet company major concerts and events Celtic Food and Drink Festival Chapter: cutting-edge policy Choral groups Cinema: three large multi-plex operations Civic Centre: landmark architecture in the heart of the city Club venues for informal music-making Community arts Diversions Dance Company Events programme Festivals (including Welsh Proms, Calennig, Cardiff Festival, Vale of Glamorgan Festival, Swansea Festival) Llanover Hall Arts Centre Media: second largest media centre in the UK Millennium Stadium: capacity to stage spectacular events to 70,000 Museum of Welsh Life: major visitor
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Cardiff International Festival of Musical No permanent home yet confirmed for Theatre CADMAD
Cardiff International Jazz Festival
Craft in the Bay
Wales International Artist of the Human Form
Wales Millennium Centre: venue for large- Wales Millennium Centre not yet confirmed scale opera, musicals and dance by National Assembly
Markets Markets c. 1.5m population in SE Wales catchment Severn Bridge toll deters visitors from area with potential to make c. 1m theatre England visits
10.5m visitors to Cardiff in 1999, of which 9.3m were day visitors Transport infrastructure Transport infrastructure
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Strategic Rail Review could yield improved Poor public transport to Cardiff Bay internal routes and better external access Inadequate car-parking in Cardiff bay First Great Western plans to increase number of services from/to London Under-utilised/developed airport, links and services Continuing growth in services to/from Cardiff International Airport
Development of integrated transport strategy for Cardiff Tourist facilities Tourist facilities
Improving provision for tourism Too few high-quality visitor attractions Well established links with travel and City still perceived to be industrial hospitality operators Inconsistent service standards throughout the High profile due to hosting major city international events Lack of critical mass of high quality Good range of places of stay restaurants Easy access to wider region: Cardiff Lack of strategic marketing focus, perceived as gateway particularly internationally Cardiff Bay is a major visitor attraction Good attractions base within wider sub- region Media facilities Media facilities
Home of three national broadcasting Shortage of skilled labour organisations New media New media
IT and Hub design sector one of the fastest Sector is fragmented growing in Wales Sector lacks strategic focus and support Cardiff University initiatives
Heavy investment in fibre optic connections, especially in Cardiff Bay Bid planning process Bid planning process
Convenient opportunity to develop Cardiff’s Many competitor cities already well- Local Cultural Strategy advanced in their planning
Opportunities Threats Development period 2003 - 2008 Development period 2003 - 2008
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Opportunities to test and challenge the vision Cost implications Possible themes: regeneration, ambition Grass-roots up approach so that the programme is owned by the people Expected massive media coverage Resolution of future of Old Library building Cost implications Distinctive character of the bid Distinctive character of the bid
Welsh language/bi-lingualism Perceptions of parochialism Evidence of clear and significant cultural residue Since Glasgow was the first UK Capital of Opportunity to challenge and reverse Culture, should Cardiff’s bid succeed, an stereotypical perceptions of the city English Capital of Culture could not be Celebration of Cardiff’s multi-cultural achieved before 2023: there may be political communities pressure to ensure that 2008 is “England’s turn” Cultural tourism Cultural tourism
Attraction of more visitors to South Wales Increased competition Development of new hotels Opportunity to move visitors on to other International visitors still use London airports parts of the country - cascading benefits of as main gateways and exits the programme for all of Wales Minority cultures Minority cultures
Positioning Wales as leading minority culture May lack market appeal in Europe Focus on young people’s culture Focus on youth culture
Politically attractive May alienate traditional audiences and Could lever in additional funding reduce the benefit of the spending power of Better prospect of a lasting legacy grey markets Festival city Festival city
Building from undoubted strength Danger of presenting re-packaged existing activities Additional resources Additional resources
Successful bid will yield significant EU Funding for additionality not core operations funding, including for the development period Team Wales approach Team Wales approach
A “joined-up” bid taking an holistic approach to culture and benefits across a wide range of social policy areas
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Political support Political support
Strong support from local authority Majority group in local authority may lose Strong support from National Assembly control at next election Support from other South Wales local Political control of National Assembly may authorities change at next election
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4. THE COMPETITION
According to media reports, as many as 70 UK towns and cities are considering bidding for the title of European Capital of Culture 2008, a figure that is, perhaps, unsurprising given that:
· the opportunity only arises once every 15 years; and that · “competition culture” is a growing phenomenon in civic circles, as witnessed by the fierce wars of words in 1999/2000 when the government selected “new” cities for the Millennium
4.1 Principal contenders
In our view, the most serious bids will emanate from:
· Belfast · Birmingham · Bradford · Bristol · Liverpool · Leeds · Newcastle/Gateshead
A brief resume of the key features of these cities follows.
4.1.1 Belfast
Belfast City’s population is 279,237
Existing cultural facilities and organisations include:
· Belfast Waterfront Hall · Cathedral Quarter · Crescent Arts Centre · Elmwood Hall at Queens · Fernhill House - ‘The People’s Museum’ · The Flax International Arts Centre · Grand Opera House · Group Theatre · King’s Hall · Lyric Players’ Theatre · Old Museum Arts Centre · Queen’s University Concert Halls
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· Ulster Museum · Ulster Orchestra · Windsor Park football stadium
Belfast has two airports.
No announcement has yet been made of Belfast’s bid.
4.1.2 Birmingham
Birmingham’s population is 1,013,100 while that for the West Midlands region as a whole is 3,158,819.
Existing cultural facilities and organisations include:
· Adrian Boult Hall · Alexandra Theatre · Barber Institute of Fine Arts · Birmingham & Midland Institute · Birmingham Museum and Art Gallery · Birmingham Hippodrome · Birmingham Royal Ballet · Birmingham Rep · City of Birmingham Symphony Orchestra and CBSO Centre · The Crescent Theatre · Custard Factory · DanceXchange · The Drum · Ikon Gallery · Midlands Arts Centre (mac) · The NEC · National Indoor Arena · Old Rep Theatre · SAMPAD · Symphony Hall · St James’ Park football stadium · Villa Park football stadium · Edgbaston County Cricket Ground
The Hippodrome is currently undergoing major refurbishment and due to re-open on 11 September, 2001. Major redevelopment work in the city centre will create Eastside and is likely to be the location for new cultural facilities. Brindley Place, to the West of the city centre, has already emerged as a key destination within the evening economy. As the UK’s second city, Birmingham has always been an ambitious local authority (bid for Olympic Games) and works positively with the
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private sector to secure major facilities, eg the National Indoor Arena. The city was host to the Arts Council’s Year of Music. Birmingham International Airport is busy, offering both scheduled and charter flights, with its own InterCity rail station. The region is developing a light rail system.
There is no information about the bid on the city’s website, nor any official announcement.
4.1.3 Bradford
Bradford City’s population is 480,907.
Existing cultural facilities and organisations include:
· Alhambra Theatre · Bradford Art Galleries and Museums · National Museum of Photography, Film and Television · The Priestly Centre for the Arts · St George’s Concert Hall · Theatre in the Mill · Valley Parade football stadium
Bradford may well have been one of the first cities to begin preparing its bid, having recruited a bid Director in 2000.
Information is available on the web outlining what Bradford’s Culture is and inviting people to comment on and present ideas for what should be included within the culture bid: www.bradford.gov.uk/culture/index.html
Bradford’s draft concept statement for its bid is:
The people of Bradford and District have a concept for the European Capital of Culture in 2008 - it is a gateway to an opportunity to take us somewhere different, in the way we do things and in the way we are seen by others across Europe.
The European Capital of Culture in 2008 -
· is a cross-roads where East meets West and is in Yorkshire · is a showcase for merging the richness of the past with the promise of the future · is where culture is unmasked for everybody to see and touch so we can unlock our potential · is the ‘nerve’ centre of courage and conviction to embrace, challenge and change
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· is Bradford, a place that is so much bigger than itself
Bradford is asking the people of the city to come up with ideas to be included in the bid - ideas can be submitted as poems, pictures, music, sculptures, models or any other form. Some of the best and most unusual ideas are to be shown at a number of venues for comment before the bid is drawn up.
The city is served by Leeds/Bradford Airport.
4.1.4 Bristol
Bristol city has a population of 405,200.
Existing cultural facilities and organisations include:
· @Bristol - Explore, Wildscreen · Arnolfini: gallery, dance theatre and bookshop · Bristol City Museum and Art Gallery · Bristol Hippodrome · Bristol Industrial Museum · Colston Hall · Old Vic Theatre · St George’s Brandon Hill · SS Great Britain · Watershed Media Centre · Ashton Gate football stadium
Bristol has adopted a “joined-up” approach to cultural development for at least the past decade, forming a public/private sector partnership organisation for the purpose. There was deep disappointment in the city when the Arts Council of England rejected a bid for Lottery support for the proposed Harbourside concert hall/dance theatre complex: it cannot be beyond the realms of possibility that this project might be revived as one of the cornerstones of its Capital of Culture bid.
Bristol International Airport has recently undergone extensive extension and renewal.
No official announcement of the city’s bid has been made.
4.1.5 Leeds
The Leeds population is 680,722.
Existing cultural facilities and organisations include:
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· City Varieties Music Hall · Civic Theatre · Henry Moore Institute · Leeds City Art Gallery · Leeds Grand Theatre & Opera House · Northern Ballet Theatre · Opera North · The Riley Theatre · Royal Armouries Museum · The Studio Theatre · Town & Country Club - Leeds · Victoria Hall · West Yorkshire Playhouse · Yorkshire Dance Centre · Elland Road football stadium · Headingley RL stadium and County Cricket ground
A significant refurbishment programme is planned for the Grand Theatre. The city itself has passed through major programmes of development and renewal as it seeks confirmation of its status as an aspirational capital for the region, if not the North of England as a whole, reflected in re-organisation of the local authority and a greater sense of purpose. Evidence cited includes the following:
· 36,000 jobs created 1991 - 1997 · base for First Direct Bank · Asda, Benefits Agency relocated their headquarters near city centre · employment grew by 2.3% (nearly double UK average) · local economy increased by 2.5%, well above national rate · employment in professional services rose from 55,000 to 80,000 in last decade · more than 180 law firms (largest legal centre outside London) · Leeds Development Agency estimate £1.6bn invested in Leeds since 1990 · Leeds University rated second only to Cambridge · 9 applicants for every place · 23,000 full-time students · 14,000 full-time students at Leeds Metropolitan University · <1m a week shopping in Leeds · Harvey Nichols, Armani, Ralph Lauren · imminent Marco Pierre White restaurant · Selfridges and John Lewis unable to find suitable prime sites
Source: The Times: 17 August, 1999
Yorkshire and Humberside was the host for the Arts Council’s Year of Photography.
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The city is served by Leeds/Bradford airport.
The city has yet to take a final decision on whether to proceed with a bid.
4.1.6 Liverpool
Liverpool’s 30 minute drivetime catchment area has a resident population of 1,768,351
Existing cultural facilities and organisations include:
· The Blackie · Bluecoat Arts Centre · Empire Theatre · Everyman Theatre · Liverpool Playhouse · Maritime Museum · National Museums and Galleries on Merseyside · Neptune Theatre · Philharmonic Hall · Royal Court · Royal Liverpool Philharmonic Orchestra · St George’s Hall · Tate Gallery, Liverpool · Unity Theatre · Anfield football stadium · Goodison Park football stadium
The centre of Liverpool is undergoing major development, partly enabled by Objective 1 funding. The city hosted one of the UK’s Garden Festivals, although the site is now derelict. The city’s people have a reputation for fierce loyalty. Liverpool will celebrate its 800th birthday in 2007.
The city has recently advertised for an Assistant Executive Director for Culture at a salary of £68,000. The bid is led by Sir Bob Scott, the individual responsible for Manchester’s successful bid to host the Commonwealth Games in 2002.
It should be noted that, while Manchester will not, itself, submit a bid for Capital of Culture, the city is supporting that of Liverpool. Manchester was host to the Arts Council’s Year of Drama.
Liverpool Airport is a main hub for EasyJet.
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4.1.7 Newcastle/Gateshead
Newcastle’s population is 273,000; Gateshead 198,100; North Tyneside 193,200; South Tyneside 153,500
Tyne & Wear as whole: 1,108,500
Existing cultural facilities and organisations include:
· Gulbenkian Studio Theatre · Jubilee Theatre · Laing Art Gallery · Live Theatre · Newcastle City Hall · Newcastle Playhouse and Northern Stage Company · Northern Sinfonia · Peoples Theatre Arts Centre · Riverside · RSC annual residency · Theatre Royal · Tyne Theatre & Opera House · Caedmon Hall · The Little Theatre · indoor Arena · St James Park football stadium
On the south bank of the Tyne, Gateshead is ready to open The Baltic, a major gallery in a refurbished flour mill and is planning for the Foster-designed Music Centre, a new concert hall complex due to open in 2004. These initiatives are earnest of Gateshead’s determination to re-position itself as a dynamic place to live and visit.
The Northern region, with Tyne and Wear as a principal focus, was host for the Arts Council’s Year of the Visual Arts. Anthony Gormley’s Angel of the North is the most famous legacy.
The Government’s recently published Green Paper for culture announces that Gateshead is one of only four English local authorities to be signalled as a Beacon Council for culture, making the most of cultural and sporting opportunities to regenerate the area and helping release its communities’ cultural energy and imagination.
Newcastle Airport is well-served by the city’s impressive Metro light rail system.
Tony Blair’s constituency - Sedgefield - is adjacent to the region.
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There is no information about the bid on these cities’ websites although it is widely assumed that they will be among the front-runners.
4.1.8 Other
Oxford has recently shown its hand in advertising for a Bid Co-ordinator at a fee of £40,000. The bid is a partnership between the City and County Councils, Oxford University, Oxford Brookes University and the Regional Arts Board, Southern Arts (soon to be disbanded).
4.2 Appraisal
To compare Cardiff with the competition:
There is a population of 1.5m in the catchment area.
Existing cultural facilities and organisations include:
· Academi Cymreig · BBC National Orchestra of Wales · CADMAD · Cardiff Bay Art Trust · Cardiff Castle · Cardiff International Arena · Celtic Food and Drink Festival · Chapter · Civic Centre · Diversions Dance Company · Events programme · Festivals (including Welsh Proms, Calennig, Cardiff Festival) · Llanover Hall Arts Centre · Millennium Stadium · Museum of Welsh Life · National Museum and Gallery of Wales · New Theatre · Oval Basin · Rubicon Community Dance · St David’s Hall · Sherman Theatre · SWICA · Techniquest · Urdd Eisteddfod · Welsh College of Music and Drama · Welsh School of Architecture
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The city is served by Cardiff International Airport.
Appraised against these cities, and drawing from the SWOT analysis above, Cardiff has the following strengths:
· it is one of only two municipal capital cities believed to be bidding (Belfast/Cardiff) · it is one of only two contenders to host two national performing arts companies (Cardiff: WNO/BBC NOW - Birmingham: BRB/CBSO) · it is the only contender that can offer a distinctive national culture · it can draw upon significant resources to fund the bid process
Appraised against these cities, and drawing from the SWOT analysis above, Cardiff has the following weaknesses:
· it is late off the blocks in planning its bid · it is late off the blocks in developing an underpinning Cultural Strategy · political cohesion behind the bid appears fragmented · there may be political pressure to ensure that 2008 is “England’s turn”
However, given that the Capital of Culture competition represents a once-in-a- generation opportunity for any competing city, and that the prize is so significant, Cardiff should proceed to make a self-confident, imaginative submission.
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5. BID MANAGEMENT OPTIONS
The structure adopted to manage the bid process will need to be able to act decisively and to take quick judgements. It will need to speak authoritatively and in a highly informed fashion. Given the very wide and diverse range of stakeholders and involved organisations, it will need to take an inclusive approach. At the same time, the bid must patently emanate from Cardiff as a city, hence the central engagement of the local authority in the process is imperative.
5.1 Cardiff County Council
In this option, the local authority would lead the entire bid process from the Marketing and Tourism Service, perhaps reporting to a special sub-group of Members. It would be necessary either to second senior members of staff to the bid team to manage the process and/or to recruit specialist expertise either on a consultancy or fixed-term contract basis. The bid would need to form the sole focus for seconded officers until the date of submission.
5.2 Cardiff County Council in partnership
In this option, the local authority in partnership with such key stakeholders as the National Assembly of Wales, Arts Council of Wales, Wales Tourist Board, Sports Council of Wales, Cardiff Marketing Ltd and Welsh Development Agency would form an independent Project Steering Group (possibly forming a limited company if required). The independent Project Steering Group may take on appropriate consultants regarding specific areas of work as required. Staffing would again be on the basis of secondments or fixed term employment except that partner agencies might also be prepared to second appropriate expertise on a basis to be agreed.
5.3 New agency
In this option, a new, independent agency - possibly a company limited by guarantee, although this might not be essential - would be formed, the local authority being the majority presence. Key stakeholders, as in 4.2 would also be represented, with the possible addition of a representative of the subsidised professional arts sector3. Depending on decisions as to the scope of culture to be included within the bid, representation might also be afforded to, for example, sport, the media and architecture. There might also be political attractions in inviting representatives of the three principal local authorities in the bid region (Newport, Vale of Glamorgan and Swansea) although care needs to be taken not to create too large and unwieldy a
3 If this were Cardiff Arts Marketing, the company would also directly benefit from strategic advice on audience development
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grouping. The agency would require delegated powers to spend within agreed budget limits and in conformity with regulations surrounding accountability for public funds. If not chaired by the Lord Mayor or a Cabinet Member, the agency would report formally in line with local authority practice.
5.4 Popular bid champion
It is understood that Newcastle/Gateshead have persuaded the actor/singer Robson Greene to act as popular figurehead for their bid. In contrast, it is apparent from Bradford’s website that the city’s approach is very much based on a “people’s bid”. Cardiff may wish to adopt one of these approaches or seek its own distinctiveness. In terms of Cardiff/Wales popular champions, the choice includes the following:
Gravitas International appeal Popular appeal John Humphries Shirley Bassey Michael Ball Vincent Kane Charlotte Church Jamie Baulch Gerald Williams Sir Anthony Hopkins Jeremy Bowen Tom Jones Lynne Bowles Julien MacDonald Huw Edwards Bryn Terfel Ryan Giggs Colin Jackson Sian Lloyd Manic Street Preachers Stereophonics
Should Cardiff’s bid succeed, the issue of gaining Royal patronage would need early examination.
5.5 Organisational structure
Whichever model for the bid management is adopted, there will be the need to create an appropriate structure to research and propose detailed arrangements for the development period and for 2008 itself. Public consultation on proposals should assume a high priority and the overall development of the bid and underpinning Cultural Strategy should have as a key aim the winning of political and popular support for the role culture can play in the life of the capital and its citizens.
The following roles and functions require consideration:
Executive leadership: the bid ideally requires high-level input from someone with experience of strategic management of the arts and cultural sectors, who is internationalist in outlook and who, if not her/himself Welsh, is totally sympathetic to
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the bi-lingual culture of the country. The person will need to be able to demonstrate in-depth experience of at least one of:
· performing arts · visual arts and crafts · film and media · fashion, design and architecture · sport · community arts
and a well-honed appreciation of how all of these sectors contribute to the cultural life of Wales.
In addition, the person should show excellent knowledge of the arts, heritage and EU funding systems. They should be completely familiar with the objectives of the Capital of Culture programme, the anticipated benefits accruing from a successful bid and be able to negotiate at the most senior levels. Communication and advocacy skills of the highest order will be essential.
Programme development: the range, quality and innovative character of the development programme and programme for 2008 will be key to a successful bid. There are options to build on Cardiff’s strengths and/or to address obvious weaknesses in areas such as drama and the visual arts. DCMS guidance also makes clear that there are concerns to see inter-connectivity between culture and other policy priorities such as social inclusion, lifelong learning and healthy living. Assembling proposals to address such a challenging agenda will require outstanding programming expertise, a proportion of which may already have been appropriated by competing cities.
However, Vincent Kane’s earlier report contains some visionary inputs across the performing arts, film and literature and there is certainly no shortage within Wales of art-form advocates who, when faced with the potential inflow of resources that a successful bid would bring, could offer innovative, imaginative and achievable ideas embracing domestic, national, international and community-focused projects. The individuals are readily identifiable and, so long as they are clear that their brief is not to progress long-held pet projects, they could, perhaps, be mobilised at relatively short notice. What would be required, therefore, would be a person or small group within the organisation’s structure charged with, firstly, updating the Cultural Audit conducted to inform Cardiff County Council’s Arts Strategy and, secondly, developing specialist briefs which, brought together, can begin to compose a compelling case and hold the prospect of achieving the overall vision for the project. If an individual, a secondment could be considered. If a group, the Chairs of ACW Advisory Panels, acting as individuals and suitably supplemented to cover all cultural sectors, would bring a strong pan-Wales perspective to the discussions.
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Strategic planning: a successful bid would result in the largest, longest and most complex event ever managed by Cardiff or, arguably, any other UK city. This results in a number of important strategic planning issues, some of which would need to be addressed from the outset, others assuming greater importance as 2008 gets nearer.
Immediate issues include:
Public affairs: creating and sustaining a positive climate of public opinion towards Cardiff as host for the Year, including gaining enthusiastic and tangible support from the private sector.
Financial management: no orders of costs either for the development period or for 2008 have yet been established but it is certain that many millions will be spent in the period 2001 - 2008, should Cardiff’s bid succeed (funded by EU, Westminster and the private sector).
Marketing and audience development: it is fortunate that Cardiff has backed the work of an exemplary arts marketing consortium since 1983 and that, in its 25th year, should the bid succeed, it will face proving its worth for the greatest cultural festival ever seen in Wales. Cardiff Arts Marketing would appear to be the obvious vehicle to be charged with the oversight of marketing for the project, perhaps joined by its sister organisations in the Valleys and Swansea/Carmarthen. A matter for early attention will be integrated ticketing and maximising the Internet as a sales tool. Input from the Wales Tourist Board will also be vital.
Community liaison: the bid is to be submitted on behalf of the people of Cardiff and, ultimately, it will be the support and involvement of residents of South Wales that will add a special character to the event and help ensure a permanent legacy. Community engagement should lie at the heart of bid proposals with plans being laid early to diffuse cultural benefits throughout the diverse communities of the bid area.
Developmental issues will include:
Education and outreach: it is preferable that the majority, if not all, of projects programmed for the development period and for 2008 should offer educational, participatory or outreach opportunities. The complete continuum of learning - from nursery to pensioner - should be addressed, providing a model approach to linking culture with lifelong learning.
Infrastructure development: the bid management process must identify obvious gaps and deficiencies in capital facilities which a successful bid might address using EU and, potentially, Lottery funding. In addition, there will be a need for close liaison between the bid team and local authority on such issues as:
· integrated public transport
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· car-parking · signposting · impact of the event on the environment · planning
and with other statutory agencies, including the police. There will be an imperative to create a safe atmosphere throughout the city
Media liaison: a media strategy will need to be developed, encompassing both domestic and global opportunities, whose aim would be to promote Cardiff as the gateway city and to attract interest in the city-region using culture as the springboard, building on and complementing existing promotional activity.
Monitoring and evaluation: the success of Glasgow 1990 was painstakingly monitored in terms of cultural and economic impacts. This process will be required for a successful Cardiff bid, not only as an inherent requirement of the programme, but in order further to validate the contribution culture makes to other vital areas of life.
Technical planning: it is both likely and desirable that many events planned for 2008 would be open-air or site-specific in nature. Cardiff County Council has a highly experienced events team whose skills could be harnessed to these projects. Additional technical issues include:
· dissemination of the event via new media · large-screen, outdoor broadcasts
Customer/Visitor care: a notable, and much commented-upon feature of the Olympic Games held in Sydney 2000 was the contribution made by the city’s residents in acting as volunteer guides to help and advise the many thousands of visitors. Such an approach might only be required over short periods in 2008, for example for the duration of festivals, but would facilitate a sense of ownership of the event amongst Cardiff’s citizens.
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6. PRACTICAL ISSUES AND FORWARD TIMESCALE
6.1 Critical path analysis
The latest date for submission of the bid is 31 March, 2002. Announcement of the shortlisted cities is expected in Autumn of that year with the Capital of Culture named in Spring, 2003. If a Local Cultural Strategy is to be produced in support of Cardiff’s bid, its development must parallel that of the bid itself unless the reasonable position is held that a carefully-crafted bid will, in itself, represent a formidable cultural strategy.
If Cardiff is to submit a credible bid, let alone one capable of winning the ultimate prize, time is of the essence. The following critical path analysis offers indications of actions to be taken following acceptance of this initial study.
Action Responsible Date body
Deliver final bid CCC/agency 31.3.02 Local Cultural Strategy adopted CCC 30.3.02
Sign-off final bid draft CCC 28.2.02 Complete consultation process for Local Cultural Strategy CCC 28.2.02
Amend initial drafts Agency 31.1.02
Complete initial draft Agency 31.12.01 Final draft of Local Cultural Strategy CCC 31.12.01
Finalise business plan; programme Agency 30.11.01 proposals; marketing plan, etc
Public consultation on draft Agency 31.10.01 plans First draft of Local Cultural Strategy CCC 31.10.01
Draft plans for all areas Agency 30.9.01
Work in progress on bid Agency August, July, June 01 Work in progress on Local
McCANN MATTHEWS MILLMAN with ARTSERVICE CARDIFF COUNTY COUNCIL- EUROPEAN CAPITAL OF CULTURE 2008: Final Draft Stage 1 37 Bid Process Report
Cultural Strategy CCC August, July, June 01
Agency team in place CCC 31.5.01 Officer team for Local Cultural Strategy in place CCC 31.5.01
Bid process analysis and Consultants 31.5.01 outline business plan
This schedule indicates that there will be a need for the bid and Local Cultural Strategy teams to begin to be assembled before the likely date of final reporting for this study, unless the local authority is able to reach speedy decisions on Stages 1 and 2. Clearly, the most important issue is to resolve which option to adopt for the management structure. If the agency approach is favoured, and it is determined to recruit an external candidate to provide executive leadership, that process should commence no later than Easter, 2001. Some possible individuals are nominated below - it is probable that most will have significant notice periods to work:
· Christopher Barron, Director, Brighton Festival · Fred Brookes, formerly Deputy Director, Eastern Arts Board · Robert Cogo-Fawcett, currently Head of Programming, Ambassador Theatres Group · Ruth Eastwood, Chief Executive, Poole Arts Centre · Emyr Jenkins, former Chief Executive, Arts Council of Wales · Brian McMaster, Director, Edinburgh International Festival · Jodi Myers, Director of Performing Arts, South Bank Centre · Robert Palmer, Director of Glasgow 1990 · Richard Pulford, freelance, former General Director (Administration), South Bank Centre and former Deputy Secretary General, Arts Council of Great Britain · Seona Reid, formerly Director, Scottish Arts Council · Neil Wallace, Deputy Director of Glasgow 1990 · fall-out personnel from the unification of the English arts funding system
6.2 Conclusions and recommendations
6.2.1 The bid
The potential cultural, economic and social benefits of being nominated a Centre of Culture, and thereafter claiming the title of European Capital of Culture 2008, present a compelling case for Cardiff to prepare a bid and to consider the process as probably Cardiff/Wales’ most important project for the first decade of the 21st
McCANN MATTHEWS MILLMAN with ARTSERVICE CARDIFF COUNTY COUNCIL- EUROPEAN CAPITAL OF CULTURE 2008: Final Draft Stage 1 38 Bid Process Report
century. To succeed, it needs the complete buy-in of the public, private, voluntary and cultural sectors and requires supremely strong leadership.
6.2.2 Bid management
Of the options considered, there is now insufficient time to create an independent agency to manage the bid process, although such a vehicle could still be considered were Cardiff to be nominated for 2008 and further consideration could be given to the possible appointment of an executive leader from the list above (which is not, it should stressed, exclusive).
Given the inclusive nature of the bid process, management by Cardiff County Council alone would be a weaker option than for the authority to act in partnership with key stakeholders.
Accordingly, given the urgency to make progress, the authority should opt for the structure described at 5.2 above, form an independent Project Steering Group of the stakeholders and consider seconding Officers and/or appointing specialist consultants to undertake the discrete tasks detailed above. Within that process, further consideration could be given to the most appropriate vehicle to take forward the necessary work should Cardiff’s bid succeed.
6.2.3 Next stages
It is vital that Cardiff County Council consider and agree the conclusions of this Report as soon as is humanly possible. The consultants are very willing to make a presentation of the issues and to contribute to discussions. It is anticipated that simultaneous discussions between the authority and the National Assembly for Wales would take place to ensure that resources can be put in place to facilitate the development of a strong bid.
Cardiff County Council should then arrange the earliest possible meeting of stakeholders at which the Report would be presented and partners’ views sought, the objective being to gain unanimous support for the bid and for stakeholders’ active participation in the bid process.
With such support gained, the consultants should be authorised to complete Stages 2 and 3 of the amended brief for the Bid Process Analysis and Outline Business Plan by 31 May, 2001. They should be instructed to consider and recommend, in particular, the balance of roles, responsibilities and actions for development of the bid as between seconded Council officers and specialist consultants. If required, but as an additional element to the original brief, the consultants could be asked to prepare detailed briefs for those roles and functions detailed at 5.5 above.
McCANN MATTHEWS MILLMAN with ARTSERVICE CARDIFF COUNTY COUNCIL- EUROPEAN CAPITAL OF CULTURE 2008: Final Draft Stage 1 39 Bid Process Report
Also by 31 May, 2001, Cardiff County Council should:
· agree the level of resources to be made available for development of the bid · agree the composition and leadership of the independent Project Steering Group · agree the extent of decision-making and fiduciary powers to be delegated to the independent Project Steering Group, taking such necessary measures as required to ensure full accountability for the expenditure of public monies while optimising the Group’s ability to take timely decisions and avoid absolutely an overly bureaucratic approach
On 1 June, 2001, Cardiff County Council should stage a Press Conference at which the city’s formal intention to bid for European Capital of Culture 2008 would be announced.
McCANN MATTHEWS MILLMAN with ARTSERVICE European Capital of Culture 2008 Draft for Consideration
The Consultants recommend an Independent Project Steering Group to drive forward a bid for the European Capital of Culture 2008. There are options regarding representation but the following organisations would have an interest in delivering a strong Cardiff/Wales quality bid.
Ø Cardiff County Council
Ø National Assembly of Wales
Ø Arts Council for Wales
Ø Sports Council for Wales
Ø Wales Tourist Board
Ø Welsh Development Agency
Ø Cardiff Marketing Ltd
Ø Cardiff Chamber of Commerce
Ø National Museums and Galleries of Wales
Ø Media Agency for Wales
Ø Welsh Local Government Association
As the Council and the National Assembly of Wales are likely to be the main financial contributors to the bid process, appropriate recognition would need to be reflected in the Independent Project Steering Group. Opportunities for co-opted members to attend Group meetings could be considered as part of the group’s constitutions/articles. The Consultants in their Stage 1 report recognised the timescales in preparing the bid and suggested that the executive staffing structure supporting the Independent Project steering Group, would consist of seconded staff, fixed term employees and Consultants. The Consultants, as part of the brief will provide a draft business plan which will evaluate the staff support required to make a bid. However the following skills will be required: -
1. Administration
2. Financial and Business Planning
3. Artistic and Programme Development
4. Public Relations/Public Consultation
5. Marketing and Promotion
6. Strategic Tourism Policy
7. Strategic Cultural Policy
8. Sponsorship and Partnership
9. International Relations (EU, etc)
Consideration will need to be given to setting up a Limited Company that will allow the Independent Project Steering Group and staff support to respond to the bid process, within the financial framework provided by the Council and the National Assembly of Wales. The Steering Group and staff support will need to be able to react quickly to issues without continuous reference to stakeholder organisations.
12th April 2001