TABLE OF CONTENTS Abbreviations ...............................................................................................................4 Acknowledgements ......................................................................................................5 Executive Summary.....................................................................................................6 1......................................................................................................................................9 Introduction..................................................................................................................9 1.1 Goals and Methods ..............................................................................................9 1.2 Structure.............................................................................................................10 2....................................................................................................................................12 Defining Heritage, Mapping its Growth ..................................................................12 2.1 What is heritage? ...............................................................................................12 2.2 The production of heritage: international context..............................................14 2.3 The production of heritage: the Irish experience...............................................16 2.4 ‘Heritage Dissonance’........................................................................................17 2.5 The growth of heritage in Ireland: key factors ..................................................19 2.5.1 Legislative developments............................................................................20 2.5.2 The Operational Programmes for Tourism: a survey of heritage attractions in Ireland ..............................................................................................................22 2.6 Conclusion .........................................................................................................27 3....................................................................................................................................29 The Economy of Heritage..........................................................................................29 3.1 Heritage and market failure ...............................................................................29 3.2 Contingent Valuation.........................................................................................30 3.2.1 Contingent Valuation and Irish heritage policy ..........................................32 Year..........................................................................................................................34 Total (€m) ................................................................................................................34 1998 .........................................................................................................................34 3.3 Tourism and heritage .........................................................................................36 3.3.1 The growth of heritage tourism...................................................................36 3.3.2 Sustainable tourism? ..................................................................................39 3.4 Conclusion .........................................................................................................42 4....................................................................................................................................44 The Administration of Heritage ...............................................................................44 4.1 Levels of government and ‘fiscal illusion’ ........................................................44 1 4.2 Heritage and subsidiarity ...................................................................................46 4.3 The role of experts in regulation........................................................................48 4.3.1 Expertise and ‘asymmetrical information’..................................................50 4.4 The voluntary sector ..........................................................................................51 4.5 Conclusion .........................................................................................................54 5....................................................................................................................................56 Heritage, Landscape and the Audit Culture ...........................................................56 5.1 Landscape and the heritage gaze .......................................................................56 5.2 The audit culture ................................................................................................57 5.2.1 Balancing conservation and innovation ......................................................60 5.3 Information versus choice..................................................................................61 5.4 Conclusion .........................................................................................................62 6....................................................................................................................................63 The Role of Classification..........................................................................................63 6.1 The uses and abuses of classification ................................................................63 6.2 National Inventory of Architectural Heritage: international, national, regional and local...................................................................................................................65 6.3 Properties in state care and ‘national’ significance ...........................................70 6.4 Conclusion .........................................................................................................73 7....................................................................................................................................75 Movable Heritage: Collection Policies and De-accessioning..................................75 7.1 De-accessioning in context: the need for collections policies ...........................75 7.2 The National Museum of Ireland.......................................................................76 7.3 The statutory burden ..........................................................................................77 7.4 Re-balancing priorities: archaeology and the National Museum.......................78 7.5 The case for a National Archaeological Repository ..........................................80 7.6 De-accessioning.................................................................................................82 7.7 The practice of de-accessioning.........................................................................86 7.8 The limits of archaeology ..................................................................................88 7.9 Conclusion .........................................................................................................90 8....................................................................................................................................91 Policy Framework: a summary of proposals...........................................................91 8.1 The overall challenge.........................................................................................91 8.2 Conceptual elements..........................................................................................91 2 8.3 Economic elements............................................................................................93 8.4 Administrative elements ....................................................................................93 8.5 The Socio-political challenge ............................................................................95 Appendix 1: Criteria for statistical table on state sector expenditure on heritage ......................................................................................................................................96 Table A.1: Explicit State Sector Expenditure on Heritage, 1998-2000...............100 Bibliography .............................................................................................................102 3 Abbreviations CSO Central Statistics Office CV Contingent Valuation EU European Union GDP Gross Domestic Product MPP Monument Protection Programme (UK) NIAH National Inventory of Architectural Heritage NIMBY “Not in my backyard” NRA National Roads Authority OPW Office of Public Works REPS Rural Environment Protection Scheme RPS Record of Protected Structures SAC Special Area of Conservation TDI Tourism Development International UN United Nations UNESCO United Nations Educational, Scientific, and Cultural Organisation 4 Acknowledgements I am grateful to the Policy Institute for facilitating this research paper and to my employer, the (then) Department of Arts, Heritage Gaeltacht and the Islands, for affording me the time to carry out the project. I would like to thank the former and current Senior Research Officers of the Institute, Una Nic Giolla Choille and Orla Lane, for their editorial advice and support in completing the paper. I would also like to thank John O’Hagan of TCD’s Department of Economics for the helpful interest he took in the project,