Culture Counts Response to the National Performance Framework Review Consultation
Culture Counts recently responded to the Scottish Government’s consultation on the National Performance Framework Review. More information on the review can be found here, and our full response can be found below.
Introduction:
Culture Counts is a network of over 70 arts, heritage and creative industries organisations. Our members are largely representative bodies, as well as some events and performing companies.
To respond to this consultation, Culture Counts has gathered information as well as perspectives from our Steering Group membership. We have focused our response on the Outcome for Culture within the National Performance Framework, the current indicators, and the impacts, challenges and barriers experienced.
1. Are there any changes to the current set of 11 National Outcomes that you would propose? If so, what would these be?
Culture Counts contributed to the last review of the National Performance Framework and welcomed the introduction of a new National Outcome on Culture introduced in March 2018. Whilst we would not propose any significant changes to the 11 National Outcomes in the review of the Scottish National Performance Framework (NPF) it should be noted that there is a case to expand the coverage of the Outcome for culture, to reflect the breadth of the culture sector, its cross-cutting impacts, influences and contribution to life in Scotland. It is limited in how it captures the potential to make contributions across Scottish society and economy and does not factor the external impacts of the sector’s work.
The Measuring Change Group (MCG) was convened in 2020 as a standing sub-group of the National Partnership for Culture with a remit to advise the National Partnership for Culture on appropriate measures, data and research that would best support decision-making related to the delivery of the Culture Strategy for Scotland. They made recommendations which included improvements to data and evidence gathering, and a review of the Cultural Strategy, which is currently underway. We would echo the findings of this group and call for its continuation.
It is difficult to assess the success of the Outcome for Culture within the NPF as the indicators (discussed later) are quantitative rather than qualitative and focussed on growth which cannot be the key indicator that is used for the country’s development. The indicators do not consider important areas that would generally be accepted as demonstrating success for audiences and participants: such as access to cultural opportunities, economic contribution, preservation of cultural heritage, overall public perception and engagement with culture as well as success at a strategic level including: the implementation of cultural policies, investments in cultural activities, and the impact of the cultural sector in Scotland and overseas. This would require up-to-date data, analysis, and expert evaluation that is not currently in place. Recent progress is still incomplete with two out of the four of the indicators for Culture still ‘to be confirmed’.
While the Scottish Government has recognised the importance of culture and made efforts to support and promote it through various initiatives, including funding for cultural organisations, supporting creative industries, preserving heritage sites, and promoting cultural tourism etc. year to year annualised funding settlements, an overall standstill in funding (lasting almost a decade) and the, recently proposed now reversed, 10% cut to Creative Scotland funding shows that the Scottish Government’s commitment is precarious and can be subject to sudden and negative change.
Culture was a late addition to the National Performance Framework outcomes and must be retained as a distinct outcome within the framework. The Outcome for Culture should articulate the broad impact of culture as well as its intrinsic value. It should recognise access to culture as a human right and the impact culture has on individual and community self-expression, confidence and wellbeing. The following demonstrate the diverse ways in which culture, as a cross-cutting issue, intersects with the other 10 Outcomes in the National Performance Framework and can contribute to holistic and sustainable development in Scotland. More needs to be done to embed and link culture across the framework in recognition of its significance in shaping Scotland’s identity, social fabric and economic development.
We would continue our call for a commitment to develop a Culture Act that will integrate culture into communities, enabling Scotland’s local economies and well-being to flourish and to deliver fair-work. Incorporate minimum levels of cultural planning, stakeholder engagement and allow for percentages of local infrastructure projects to be invested into culture.
Health: Cultural engagement, participation, and creative expression can enhance individual and community well-being. Cultural activities, such as arts, music, and festivals, contribute to improved mental health, social connectedness, and overall quality of life. Linking cultural outcomes in the NPF to health indicators will encourage policies and initiatives that promote the use of arts and culture for well-being, cultural prescribing, mental health, therapeutic and community-building purposes etc.
The National Centre for Creative Health (NCCH) advocates for non-clinical approaches to health and the use of cultural, creative, natural and community assets (including artists, arts organisations, libraries, museums, heritage sites, green and blue spaces). Supported by a strong evidence base, Creative Health is integral to improving population health, tackling enduring health inequalities, prevention, health promotion, and the management and treatment of disease. To maximise the benefits requires Creative Health to be fully and sustainably embedded into the healthcare system and reflected in legislation and policy.
The use of arts and culture in healthcare settings, such as music therapy or art therapy programs, has been shown to improve the well-being and quality of life for patients. For example, the reports that music therapy reduces anxiety and the need for medication in 67% of people with dementia.
Community arts initiatives like local theatre groups or choirs, provide opportunities for individuals to engage in creative activities, fostering a sense of purpose, connection, and personal fulfilment.
Creative practitioners contributed greatly to supporting mental health and wellbeing during COVID-19.
Of the 2,500 museums and galleries in the UK, 600 have programmes targeting health and wellbeing.
Artlift, which provides arts-on-prescription courses has shown a 37% drop in GP consultation rates and a 27% reduction in hospital admissions. This represents a saving of £216 per patient.
Communities: Culture can empower communities by providing platforms for expression, amplifying voices, and fostering community engagement. It can enable participatory approaches to cultural development, encouraging grassroots initiatives and community-led projects and support rural communities.
Examples of community-led arts projects, such as the Pittenweem Art Festival empower local communities by giving them a voice, fostering a sense of belonging, and encouraging active participation. Cultural initiatives that engage citizens in decision-making processes regarding planning or cultural development promote civic engagement and community ownership.
Arts and culture often lie at the heart of placemaking and can contribute to complex issues around planning that Community Planning Partnerships are concerned with.
Economy: Culture is a driver of economic growth, particularly through the creative industries. It contributes to job creation, innovation, tourism, and the generation of cultural and creative products and services. The cultural sector also plays a significant role in attracting investment and talent to Scotland. Recognising culture as a contributor to the Economy Outcome within the NPF can stimulate the growth of creative and lead to policies and initiatives aimed at nurturing entrepreneurship, supporting creative startups, attracting investments, and promoting cultural tourism.
The film and television industry in Scotland, supported by initiatives like Screen Scotland, contributes to economic growth, job creation, and attracting international productions to the country.
Creative hubs, such as Edinburgh Palette or Glasgow's The Whisky Bond, provide spaces for artists, designers, and entrepreneurs to collaborate and innovate, driving creative industries and economic development
Education: Culture can play a vital role in education, fostering creativity, critical thinking, and cultural literacy. It can enrich curriculum content, support experiential learning, and enhance the educational experience by promoting cultural understanding and appreciation. The integration of cultural elements and perspectives into school curricula, such as studying local history or engaging with traditional arts, promotes cultural literacy and broadens students' understanding of the world.
Cultural organisations, such as museums and galleries, offer educational programs and resources that enhance learning outcomes for students.
The role of the culture sector and its willingness and speed in stepping up came to the fore during the Covid-19 pandemic when organisations such as DCA in Dundee and many others created home learning resources to help support home teaching
Environment: Culture can promote sustainable development by raising awareness of environmental issues, encouraging sustainable practices, and fostering a sense of stewardship towards natural, built, and cultural heritage. Scotland’s cultural sector is overwhelmingly committed to environmental sustainability and seeking innovative solutions to net zero. In addition, this is an issue that artists are particularly connected with, and their work often draws attention to climate change and its societal impacts.
Cultural initiatives that focus on environmental themes, such as eco-art installations or environmental storytelling performances, raise awareness about environmental issues and promote sustainable practices.
Cultural heritage sites, such as castles or historic landmarks, contribute to sustainable tourism and generate economic benefits while preserving the cultural and natural heritage.
Many cultural organisations such as the Edinburgh International Festival, have embedded sustainable initiatives at the heart of everything they do. This includes setting ambitious targets, taking action, leading and influencing others, educating, engaging and encouraging behavioural change.
Fair Work and Business: Culture intersects with the digital domain, leveraging technology to facilitate artistic creation, cultural preservation, and digital access to cultural resources. Culture contributes to digital innovation, including the development of gaming, virtual exhibitions, digital storytelling, and interactive cultural experiences.
Digital platforms, like virtual museum tours or online art galleries, make cultural experiences accessible to a wider audience, transcending physical barriers. Digital arts initiatives, including digital storytelling projects such as the Scottish International Storytelling Festival’s online Global Storytelling Lab, or virtual reality exhibitions, explore new forms of artistic expression and innovation at the intersection of culture and technology.
The Culture Strategy for Scotland highlights strengthening culture as one of its key ambitions. To achieve this, Scottish Government committed to considering ways to support the cultural workforce and to work on making the culture sector part of Scotland as a Fair Work Nation. One of the actions underpinning this commitment was to undertake a status review of the cultural workforce through the Review Of Fair Work and its soon to be published update.
Human Rights: Culture can foster social cohesion by promoting understanding, tolerance, and dialogue among diverse communities. It can celebrate diversity, challenge stereotypes, and contribute to the inclusion of marginalised groups, enhancing social integration and a sense of belonging.
Cultural festivals, such as the Edinburgh Festival Fringe, bring together diverse artists and audiences, promoting intercultural understanding and fostering social cohesion. Community-based arts projects, such as those organised by community centres or local arts organisations, engage marginalised groups and promote their inclusion and empowerment through artistic expression.
Impact Arts in Glasgow aims to make positive change and tackle inequalities through creative engagement. Over the last year they have engaged over 7,000 people, delivered over 3,000 workshops and sent out over 800 creative art packs, ensuring that 81% of the young people they work with go on to positive destinations.
Children: Culture bridges generational gaps by preserving and transmitting traditional knowledge, practices, and heritage to future generations. Culture and creativity play a key role in children’s development and education.
Traditional music workshops or intergenerational storytelling programs facilitate the transmission of cultural heritage from older generations to younger ones, fostering intergenerational dialogue and preserving cultural traditions.
Through gaining and building on cultural capital experiences in the early years, children are more likely to be more experienced for future successes as it can guide them to make more informed decisions later in life allowing them to become knowledgeable, empathetic individuals.
As Angus Robertson said in May 2023, launching a new funding round of the Youth Music Initiative: “Music plays a vitally important role in young people’s lives, and beyond developing their wider skills and learning we know these kinds of activities also have a huge positive impact on their confidence and wellbeing.”
International: International cultural activity strengthens Scotland’s reputation as an ambitious, innovative connected centre for the arts, internationally open to new ideas and partnerships. Scotland’s culture is well received and respected internationally and our success on a global stage shows it is outward looking and confident in the way it presents itself at home and abroad. Recognising culture as a contributor to the International Outcome could have a range of positive impacts on cultural organisations, from increasing exposure and revenue to promoting diversity and collaboration.
Many of the organisations in Culture Counts membership work internationally both exporting culture through taking creatives and cultural products from Scotland to other countries and importing culture through bringing creatives and creative products from other countries to Scotland. International cultural activity can have a soft power or diplomatic focus, promoting cultural exchange and understanding between different communities, and helping to promote Scotland's reputation on the global stage.
Scotland’s performing arts companies at every scale enjoy strong collaborative relationships with peers around the world through tours and co-productions. This includes the thriving young audiences’ sector, and Scottish playwriting where some of the most translated and produced plays on the European stage in the past decade were written by playwrights based in Scotland.
Poverty: culture can help to address certain issues associated with poverty as part of a broader multi-sector approach. Cultural interventions can help to create jobs and foster entrepreneurship, enhance skills development, provide access to education, inspire community development and support health and well-being.
Impact Arts tenancy sustainability programme, Make it Your Own, provides bespoke support to adults who have been homeless or are at risk of homelessness to take ownership of their tenancy, develop and make it their own style. Participants benefit from practical decorating support and equipment, a home improvement budget as well as life-skills training and development. Activities include furniture up-cycling, sewing soft furnishings (cushions, throws, window dressings), creating accessories for the home but crucially, people are encouraged to develop their own tastes and ideas so that their home feels like their own.
2. Are there new National Outcomes that should be included in the National Performance Framework, if so why should they be included?
We would not propose any new additions to the 11 National Outcomes in the review of the Scottish National Performance Framework.
There may be an argument for amalgamating some of them to reduce the number of Outcomes.
3. Are there any changes you would propose to the wider National Performance Framework on set of National Indicators?
Our recommendations focus on the National Indicators which sit within the Culture Outcome, to ensure that it is aligned with the unique context, challenges, and aspirations of Scotland, as well as responding to current and evolving social and economic challenges and priorities.
The four National Performance indicators within the Scottish National Performance Framework (NPF): Attendance at cultural events or places of culture, Growth in the cultural economy, Participation in a cultural activity and People working in arts and culture only focus on growth and use quantitative data to measure what is generally a qualitative Outcome. The indicators are also predominantly focused on impacts on the individual without setting any goals for culture externally or its ambition.
Recommendations:
Review of the indicators: The indicators would benefit from being updated and should be based on a thorough review and analysis of their effectiveness, relevance, and alignment with the desired outcomes and should reflect current priorities and challenges such as the impacts of Covid-19, the cost-of-living crisis and Brexit. Revised indicators should have a mix of quantitative and qualitative measures and consider the possibilities of unlocking cross-portfolio working via the framework. The indicators should also link to and align with other strategies including the Refreshed Cultural Strategy Action Plan and the International Cultural Strategy.
The Federation of Scottish Theatre’s (FST) evidence to the Constitution, Europe, External Affairs and Culture Committee on Funding for Culture (September 2021) called for different performance indicators for culture, that reach beyond the metrics of growth. This was deemed important as we move towards a future which will prioritise fairness and wellbeing for people and nature; champion equitable access to create, participate and engage in performance activity; make more effective and sustainable use of our resources; and nurture greater collaboration and partnership working.
Review the indicators and their links to the United Nations Sustainable Development Goals: the indicators should align with a broader number of Sustainable Development Goals. At present the indicators link to: 5: Gender equality, 10: Reduced inequalities and 11: Sustainable cities and communities. Whilst these are all relevant, culture should also be linked to additional Sustainable Development Goals: 3: Good health and well-being, 4: Quality education, 8: Decent work and economic growth, 9: Industries, innovation and infrastructure, 13: Climate Action, and 16: Peace, justice and strong institutions.
The status and activities of the SDG Network should be clarified.
Alignment with Policy Priorities and strategies: it is important to ensure that the indicators are aligning with existing and upcoming strategies including the Cultural Strategy, International Cultural Strategy, Scotland’s National Strategy for Economic Transformation etc. and can contribute towards the development of current policy priorities and ongoing and emerging challenges. There is also a need for a dedicated Strategy for the Creative Industries. Alongside the challenges in data and evidence availability, it is important to note that the Culture Strategy itself, was not written in a way that is easily measurable. It would therefore be useful if the refreshed Cultural Strategy Action Plan ambitions were linked to the NPF and specific outcomes, indicators, or targets, which are measurable in order to monitor and evaluate its impact.
Scottish Government Investment: The policy priorities and strategies mentioned above demonstrate the Scottish Government has a desire to make policy interventions in arts, culture, heritage and creative industries but these could go much further in cross portfolio matters. It is important to measure the success of these interventions, but equally important is measuring the investment behind them. Suggested measures include:
Funding to Creative Scotland and Other Arts, Cultural Collections, Major Events & Themed Years, Culture & Major Events Staffing, National Performing Companies, Architecture & Place compared with previous years.
Address the concern regarding Event Scotland development budget for regular events originating in Scotland has been cut by one third.
Level 3 spending per head of population and comparison to previous years.
Local Authority spend on culture and comparisons with previous years.
Improvements to data
There is a need for robust data on culture and continued improvement of data capture.
Development of a strategic approach to data collection
Expansion of the current data sources from the Scottish Household Survey to more innovative qualitative sources. The indicator for people working in the sector is in part unmeasurable and significantly underestimates the total numbers as cannot measure those operating below the VAT threshold.
Identify and address any gaps: in data availability or coverage for the indicators.
Enhance Disaggregation: to capture the experiences and outcomes of different groups and individuals to provide insights into inequalities and disparities to help identify areas for targeted interventions.
Standardisation and sharing of data: standardising data would reduce duplication of effort and the need for cultural organisations to provide the same information to multiple bodies and enable it to be shared and accessed publicly.
Collaborate: on data collection with partners such as research institutions, and stakeholders to provide a joined-up approach, improve data collection methods and fill data gaps, ensuring a more comprehensive and accurate monitoring process.
A regular review and evaluation process involving relevant stakeholders, experts, and data custodians in the process of reviewing and updating the National Indicators. This will help to ensure that the changes are evidence-based, informed by diverse perspectives, and aligned with the goals and aspirations of Scotland.
Ensure that the data can be disseminated and used to inform decision and policy making which leads to positive change.
4. What impact does the current National Outcomes have on your work/the culture sector?
The inclusion of culture in the National Performance Framework. reflects its role in society and its impact depends on how it influences or is featured within the implementation of policies, the allocation of resources, and the commitment to achieving the defined outcomes for culture. Monitoring, evaluation, and ongoing stakeholder engagement are crucial to ensure that the desired impact is being realised and to make any future adjustments.
Greater embedding, cross-sector connections and reflection of culture within the NPF would allow organisations to align better with it in planning and delivery making the NPF a more central part of the operation of the culture sector.
Funding and Support: The embedding of culture with improved measure would influence the allocation of public funding and support. Funders may prioritise funding initiatives, grants, and programmes that directly contribute to achieving the cultural outcomes defined in the framework. This can provide financial support for artists, cultural institutions, and creative projects, fostering a vibrant cultural sector with far reaching impacts and increased sustainability.
Collaboration and Partnerships: The NPF's outcomes can encourage collaboration and partnerships between different sectors and stakeholders. It can facilitate connections between artists, cultural organisations, businesses, educational institutions, and community groups to promote cross-sectoral initiatives that leverage creativity for social and economic development.
Policy Focus: Culture still struggles to integrate into areas of policy despite a recognition of its importance in societal development. Addressing this could lead to an increased policy focus and resources allocated to support cultural activities, arts organisations, creative industries, and cultural heritage preservation.
Cultural Action: The inclusion of culture can influence action including the promotion and preservation of contemporary culture and cultural heritage. This can lead to efforts to drive creative ambition, protect historic sites, safeguard traditional knowledge and practices, and promote cultural education and awareness.
5. What are the main obstacles and barriers in the further implementation of the National Outcomes?
The further implementation of the National Outcomes within the Scottish National Performance Framework (NPF) could be subject to a number of obstacles and barriers. Addressing these requires a proactive and adaptive approach, including clear strategies, adequate resources, stakeholder engagement, and regular monitoring and evaluation. Flexibility, responsiveness, and learning from both successes and failures to date are essential for overcoming barriers and advancing the implementation of the National Outcomes.
Resource Constraints: Adequate resources are essential for effective implementation. The allocation of sufficient funding and support required is vital to achieve outcomes. Competing priorities and budgetary constraints will restrict the implementation of and the development and delivery of programmes of work related to the outcomes.
Policy Alignment: Ensuring alignment between government policies, strategies, and initiatives is an ongoing challenge. Different sectors and government departments may have their own priorities and objectives, making it difficult to coordinate efforts and achieve synergy across different outcomes. Without a Strategy for the Creative Industries with a cohesive and joined up vision, the creative and cultural sector is often omitted from policy development and there is an ongoing issue of the sector not being considered or engaged with, or substituted for tourism, which is disappointing given the major economic impact and level of employment it represents.
For example we understand that Culture, Creative Industries and Events are not represented on the New Deal for Business Group and we are being directed to feed in through tourism colleagues We are heavily impacted by regulatory/ policy decisions – not least STLs, TVL and Alcohol Sponsorship which have dominated in recent months, and we do need to be part of that reset and not be seen separately to the business and economy stakeholders.
Stakeholder Engagement: Engaging and involving relevant stakeholders in a meaningful and inclusive way is crucial for success and requires effective communication, collaboration, and consensus-building.
Data Availability and Monitoring: Monitoring progress towards the outcomes requires data. There is a lack of data available and collating the right kinds of data is likely to be expensive. Obtaining relevant data is a challenge, especially outcomes that require qualitative results and not just measuring numbers. The development of robust monitoring and evaluation mechanisms and ensuring data collection is joined up and analysis capabilities are in place will help to overcome this barrier.
External Factors and Uncertainties: The cultural sector is presently focused on the challenges it faces in sustaining itself. Adapting the National Performance Framework to respond to external factors such as the current economic conditions and cost of living crisis, societal inequalities, the ongoing impacts of Brexit, and global events could be very welcome but may also impact the implementation of outcomes if there is a conflict between short term rather than long term. Many of these current challenges were relatively unforeseen circumstances when the NPF was launched.
Political Will and Leadership: Sustained political will, leadership and a commitment to the cultural agenda are critical for effective implementation. Changes in political leadership and shifts in priorities can impact the commitment to the outcomes and the continuity of policies and initiatives. Committed leadership is necessary to drive implementation forward and overcome resistance.