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Creating Synergies Between Cultural Policy and Tourism for Permanent and Temporary Citizens

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Creating Synergies Between Cultural Policy and Tourism for Permanent and Temporary Citizens UCLG Committee Leading City of Agenda 21 for culture United Cities and Local Governments (UCLG) CREATING SYNERGIES BETWEEN CULTURAL POLICY AND TOURISM FOR PERMANENT AND TEMPORARY CITIZENS Greg Richards and Lénia Marques 1 Committee on Culture of UCLG [email protected] October 2018 The report is available on-line at http://www.agenda21culture.net. The report can be reproduced for free as long as authors are cited as source as follows: Richards, G. and Marques, L., “Creating synergies between cultural policy and tourism for permanent and temporary citizens”. The authors are responsible for the choice and the presentation of the facts contained in this text and for the opinions expressed therein, which are not necessarily those of UCLG and do not commit the organisation. Authors: Greg Richards and Lénia Marques. The copyright of this report belongs to UCLG – United Cities and Local Governments 2 GREG RICHARDS Greg Richards is Professor of Placemaking and Events at Breda University and Professor of Leisure Studies at the University of Tilburg in The Netherlands. He has worked on projects for numerous national governments, national tourism organisations and municipalities, and he has extensive experience in tourism and leisure research and education. His recent publications include the SAGE Handbook of New Urban Studies (with John Hannigan), Reinventing the Local in Tourism (with Paolo Russo) and Small Cities with Big Dreams: Creative Placemaking and Branding Strategies (with Lian Duif). LÉNIA MARQUES Lénia Marques is an Assistant Professor of Cultural Organisation and Management at the ERASMUS University in Rotterdam, the Netherlands. Besides having obtained her PhD from the University of Aveiro (Portugal), she completed a Postgraduate Diploma in Cultural Tourism at the University of Barcelona. She has worked on many international cultural development projects, particularly in Africa and Brazil. She has also extensive research experience in the fields of cultural events, creative tourism and sustainable tourism. 3 CONTENTS Part 1. A review of the relationship between cultural policies and tourism 1.1 | Background to the study 1.2 | Introduction: The changing dynamics of culture and tourism 1.3 | Drivers of integration between culture and tourism 1.4 | Changing urban forms and governance structures 1.5 | Changing practices of culture and tourism 1.6 | The growth of tourism in cities 1.7 | The impacts of growing mobility on cities 1.8 | Sharing the city 1.9 | Issues in the shared city 1.10 | Blending in? 1.11 | The sustainability of culture 1.12 | Conclusions Part 2. Culture and tourism in the city case studies 2.1 | Introduction 2.2 | The cities in context 2.2.1 | Culture and creativity 2.2.2 | Culture and the quality of life 2.2.3 | Relationship to foreigners 2.3 | Noise, safety and trust 2.4 | Tourism in the case study cities 2.5 | Reactions to recent tourism growth 2.6 | Conclusions Part 3. Case Study City Profiles 3.1 | Amsterdam 3.2 | Copenhagen 3.3 | Lisbon 3.4 | Montréal 3.5 | Rome Part 4. Reflecting on the experience of Barcelona Part 5. Conclusions 5.1 | Approaches to Cultural Policies and Sustainable Development 5.2 | Reflecting on the model of the city from the perspective of culture 5.3 | Establishing Meeting Spaces for Active Participation in Cultural Life 5.4 | Influencing Tourism Through Mediation and Promotion 5.5 | Reinvesting Economic Gains from Tourism in a Sustainable Cultural Ecosystem 5.6 | Establishing New Spaces for Governance of Culture and Tourism 5.7 | Ways forward? Part 6. References Appendix 1: List of interviewees 4 PART 1. A REVIEW OF THE RELATIONSHIP BETWEEN CULTURAL POLICIES AND TOURISM 5 1.1 BACKGROUND TO THE STUDY The previous report on The Relationship Between Culture and Tourism in Barcelona (UCLG-ICUB, 2018) identified the need to address from the perspectives of cultural policies and sustainable development the critical elements of the culture-tourism relationship, to generate meeting spaces around active participation in cultural life and promote culture in the tourist offer while reinvesting the economic gains from tourism in the sustainability of the cultural ecosystem. The current UCLG-ICUB project on “Creating synergies between culture and tourism for permanent and temporary citizens” is one more step in this programme. In this initial report, we map out some of the basic issues that have emerged from previous analyses of the relationship between cultural policies and tourism. In particular we highlight how both cultural policies and tourism are changing in response to wider driving factors, and how this is bringing culture and tourism, and permanent and temporary citizens, closer together. 1.2 INTRODUCTION: THE CHANGING DYNAMICS OF CULTURE AND TOURISM Culture forms a vital part of the daily life and development potential of every city. Culture feeds the creative, educational and social aspirations of residents, and also forms an increasingly important attraction for visitors and other mobile groups. The recent UNWTO report on Tourism and Culture Synergies (2018) underlines the way in which culture and tourism are increasingly entwined in terms of cultural development, identity formation, social cohesion and economic growth. Cultural tourism is estimated to account for almost 40% of all international tourism, and is a major activity in historic and creative cities such as Barcelona. Now cultural tourism is also expanding into new directions provided by the creative industries and ‘creative tourism’. Cities are confronted with a wide range of opportunities and challenges stemming from these dynamic developments. As the spaces and administrative contexts in which culture, creativity and tourism most frequently come together, cities need to react to and increasingly direct such relationships. There is a particularly urgent need to develop constructive and proactive approaches to the relationship between culture and tourism because of the recent attention focussed on the negative impacts of rapid urban tourism growth. In recent years, the increase in tourism flows has called into question previous growth-oriented models of tourism. Overcrowding, increased pressure on public services and amenities as well as changing civic priorities have strained relations between local and mobile populations. A growing range of cultural phenomena have become the object of tourism, expanding the previously closed system of visiting specific cultural institutions and ‘must see sights’ into an open system that includes tangible and intangible, built and mobile assets, and ultimately the daily life of the destination. The ‘local’ is no longer just the taxpayer supporting local cultural provision, but also the target of tourism consumption and the producer of the local culture sought by tourists. 6 The increasing synergies between culture and tourism in cities have been stimulated by changes in both fields. Cultural consumption has shifted historically from an elite pursuit to a more democratised and generalised aspect of. modern leisure, and increasingly tourism. Sacco (2011) describes the shift from ‘Culture 1.0’, during which museums, theatres and other cultural facilities were initially supported by patronage, towards Culture 2.0, where culture became an educational and economic field, subsidised by the public sector to edify and stimulate growth and jobs, to the current state of Culture 3.0 (Table 1.1). The diversification of cultural taste under Culture 3.0, and the fragmentation of cultural production and access to new technologies and media, challenges the monolithic production of culture under Culture 2.0. Alongside educational and economic value, culture is also seen as a means of creating identity, stimulating social cohesion and supporting creativity. The evolution of cultural production and consumption has also affected the interaction between culture and tourism, from the elitism of the Grand Tour under Culture 1.0 to the growth of cultural tourism in Culture 2.0 to a much more widespread and fragmented consumption of different cultural forms under Culture 3.0 (Richards, 2015). In general terms, it might be argued that cities are seeing a shift from two separate systems of ‘culture’ and ‘tourism’ towards the integrative phenomenon of ‘Cultural tourism’, and are increasingly moving towards a ‘Culture of tourism’, in which tourism becomes one of the major modes through which increasingly mobile populations interact with the urban environment. At the same time, cultural policy is having to come to terms with an increasingly dynamic landscape within which mobility becomes a cultural challenge and an opportunity. TABLE 1.1 PHASES OF CULTURAL DEVELOPMENT AND THE GROWTH OF CULTURAL TOURISM PHASE CULTURE (SACCO, 2011) CULTURAL TOURISM (RICHARDS, 2014) 01 Culture 1.0: culture as by-product of Cultural tourism 1.0 – Grand Tour, industrial growth. Wealthy merchants cultural consumption by a small elite. and industrialists invested in culture as a means of polishing their image and/or doing good for the community. 02 Culture 2.0: culture as industry. With Cultural Tourism 2.0 – Mass cultural industrialisation and the growth of the tourism, development of cultural culture industries, culture became an resources as tourist attractions. economic field, invested in by the public sector to stimulate growth and jobs. 03 Culture 3.0: culture as a source of Cultural tourism 3.0 – Culture as a value new value(s). The diversification of platform for tourism (and vice versa), cultural taste, the fragmentation of increasing integration of tourism and cultural production and access to new everyday life. Diversification of different technologies and media challenges types of ‘tourism’. the monolithic production of culture under Culture 2.0. Alongside economic value, culture is also seen as a means of creating identity, stimulating social cohesion and supporting creativity. 7 Part 1 of the report sets the scene against which the city case studies in Part 2 are developed, focussing on cultural policies and their impact on tourism. To provide a background to the research this section sets out the state of the art in the development of the relationship between culture and tourism in cities.
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