September 29, 2000
FINAL
INCP Working Group on Cultural Diversity and Globalization
Discussion Paper for Ministerial Consideration:
International Responses to the Challenges Facing Cultural Diversity
(1)
Background
At the second annual meeting of the International Network on Cultural
Policy in September 1999, in Oaxaca, Mexico, Ministers agreed that
interested members should pursue an in-depth examination of the
relationship between cultural policy objectives and globalization.
This reflected the objective of the UNESCO Stockholm Action Plan
on Cultural Policies for Development which called on governments
to “Promote the idea that cultural goods and services should
be fully recognized and treated as not being like other forms of
merchandise.”
A Working Group on Cultural Diversity and Globalization was established
to provide Network ministers with advice and concrete proposals
on how to advance their cultural policies regarding cultural diversity
both nationally and internationally.
The Working Group, sponsored by the Department of Canadian Heritage,
has met twice.(2) At its first meeting (Ottawa, Canada in December
1999) it agreed to focus initial work in 1999-2000 on providing
advice to Ministers on international policy responses to cultural
diversity challenges and opportunities. The Working Group commissioned
three applied research projects including a qualitative survey of
Network members which identified common challenges and opportunities
which national cultural policy administrations are facing in support
of cultural diversity, (3) a catalogue of existing international
instruments and principles pertaining to culture,(4) and an overview
of cultural diversity management which highlights the broader human,
identity and social cohesion policy issues of cultural diversity.(5)
The Network Liaison Bureau augmented this work with a listing of
international instruments which refer to culture(6) and an overview
of some of the recent international initiatives on cultural diversity(7).
These references were the focus of the Working Group’s second
meeting (Hannover, Germany in June 2000) and are an important basis
for this discussion paper. This paper reflects the research, findings
and deliberations of the Working Group. It also provides the Working
Group’s advice to Ministers on potential responses to promoting
cultural diversity in a globalized world.
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I - CHALLENGES, OPPORTUNITIES AND ISSUES RELATED TO CULTURAL DIVERSITY
Shared global opportunities and challenges
Trade liberalization, technological developments and industry
consolidation are rapidly defining global economies, global markets
and global societies. These trends offer important opportunities
for many, such as the development and sharing of diverse cultural
identities and traditions inside and outside national borders. However,
they also create global environment for marketing as well as production,
which place local or national cultural policies and identities at
risk.
While globalization offers great opportunities for the promotion
of cultural diversity, it also poses fundamental challenges to the
ability of governments, civil society and the private sector to
nurture this diversity. The policy challenge is to find the means
to remain open to the best that the world has to offer, while nurturing
domestically rich, diverse cultural expression. Preserving and promoting
cultural diversity is a challenge that requires global as well as
domestic responses. An overriding theme in the survey responses
was the impact that globalization has on cultural diversity in terms
of the shifting relationships among local, national and international
identities.
Addressing concerns of developing countries
Clearly, the development of new information, communication and network
technologies offers important opportunities to have a cultural dialogue
and build mutual understanding.(8) However, increased interaction
between languages and cultures is not always equal, and this imbalance
can pose a threat to the existence of smaller cultural and linguistic
traditions. Increased interaction with cultures possessing a global
reach can pose a threat to local and regional cultures. This imbalance
is most evident when the differences between developing and developed
countries are examined. In many developing countries, besides the
challenge of establishing cultural and media infrastructure, basic
technological infrastructure is still absent or underdeveloped and
levels of technological literacy, due to this digital divide, often
lag behind developed countries.(9) Over and above the technological
aspect, developing countries should maximize the potential of investing
in the cultural sector as a source of economic dynamism and a catalyst
to development. Non- commercial forms of culture are increasingly
under threat. The fact that the number of languages in the world
is decreasing is an indication that the world’s cultural diversity
requires protection and support. Indigenous cultures in developing
countries are more at risk because their governments have less resources
at their disposal to correct market forces. In developed countries,
concern relates more to the reform of existing infrastructure to
reflect radically changing demographics and globalization, while
increasing partnerships between public and private sectors. The
challenge is to begin focusing on approaches to promote cultural
diversity that are relevant to all regions, both developing and
developed.
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Emerging broad concept of cultural diversity
The concept of cultural diversity includes a complex, and broad
range of interconnected elements that are shaped by economic and
social priorities. As suggested by Network experts, cultural diversity
is directly linked to issues of human values and human security,
social cohesion, democracy, access, creativity, language, expression,
cultural resources and capital; it is also a means of overcoming
social exclusion and promoting sustainable cultural and economic
development. In other words, cultural diversity is inextricably
linked to public policy and governance issues relating to prosperity,
security and the participation of citizens in their societies. While
the discussion of cultural diversity encompasses the concerns over
the cultural policy - trade policy nexus, it indeed is much broader
and touches on issues of quality of life and human development.
On one level, the concept of cultural diversity is grounded in
the value of unique languages, cultures, traditions, values, and
histories. It is associated with the breadth of human diversity
found within and between States. On another level, cultural diversity
is the ability to nurture these differences through creative expression.
The creation, innovation, production and consumption of the multitude
of forms of cultural expression, and media, including music, the
written word, the visual arts and cultural heritage contribute to
the quality of life of people. All of these factors highlight the
special role played in societies by local cultural products, a role
that should be reinforced.
In this context, it is not surprising that cultural diversity poses
many different challenges and opportunities for countries. The central
and common view underlined by the survey and Working Group discussion
was the pressing need for increased domestic and international recognition
and management of cultural diversity to ensure the linguistic, cultural,
civil and human rights of citizens, while at the same time sustaining
a basic level of shared identity, social cohesion and national solidarity
in a global environment.(10) Management of cultural diversity is
needed to ensure peaceful coexistence of the greatest number of
people.(11) Respect for cultural diversity requires governments
to recognize the importance of seeking sustainable solutions to
a range of social and economic challenges.
Managing cultural diversity domestically
The research documents prepared for the Working Group highlight
the need for recognition and management of cultural diversity within
countries and regions. Recent striking events in various regions
of the globe demonstrate that respect for the human rights of minority
communities is a major issue in maintaining cultural diversity in
the context of globalization, world peace and stability.(12) Given
the current global environment of economic liberalization and technological
change, and varied levels of understanding of cultural diversity
among countries, ensuring the recognition and management of cultural
diversity is a formidable and pressing challenge for which current
national cultural policy frameworks may not be adequately structured
or effective.
Concomitant with common action internationally, it is critical
that cultural policies at home recognize and value culturally diverse
communities (multiculturalism) while also fostering interaction
among these communities (interculturalism).(13) The fundamental
goal of intercultural dialogue is to understand the differences
between, and similarities among, cultures through contact with others
in order to contribute to mutual respect. Peaceful coexistence and
respect for human rights among other dimensions of a broad concept
of cultural diversity, as well as the effect that economic liberalization
and technological advancements have on these rights, should be at
the basis of policy discussion among Network Ministers.
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Limits of existing international commitments
The catalogue of existing international principles prepared for
the Network, while not exhaustive, examines a wide variety of existing
multilateral, bilateral and regional instruments and illustrates
the range and context of principles on culture and cultural products
that currently exist.(14) Analysis of these principles shows that
the global community, through a variety of multilateral fora, has
already recognized the importance of some aspects of culture and
cultural diversity in a host of agreements, declarations and action
plans. However, this recognition has not yet led to concerted action,
nor do the existing instruments address the full range of cultural
diversity issues that countries around the world are facing.
The catalogue indicates that existing international instruments
pertaining to culture can be grouped, broadly speaking, in two categories:
legally binding instruments (charters, protocols, conventions, trade
agreements and treaties) and instruments that are not considered
as legally binding (declarations, resolutions, action plans, recommendations,
principles and guidelines). Despite this categorization, it should
be noted that legally binding instruments often retain a largely
declaratory character and rarely include an enforcement or dispute
settlement mechanism.(15) Most of these instruments are therefore
not enforceable in practical terms.
Of concern to the Working Group was that the current approach to
international norm setting in cultural matters may not prove to
be sufficient in the present context of accelerating globalization
and interconnection to address the emerging issues which the cultural
diversity concept has identified.(16) The primary question for consideration
by the Working Group was: how best could cultural ministers address
these gaps in current international commitments?
II: TOWARDS A CONCERTED INTERNATIONAL APPROACH
A new instrument as an international cultural policy response?
In an era where borders are increasingly open to global markets,
ideas and values, the international community is seeking to find
new ways to sustain and promote cultural diversity and expression
while maintaining access to the best the world has to offer. The
Working Group suggests that Ministers should focus on what form
of feasible, effective and enforceable global response could be
developed which reflects shared opportunities, concerns and challenges
and expands on previous international cultural commitments. It is
within this context that the idea of an international “instrument”
on cultural diversity emerged.
Countries around the world have different priorities related to
the concept of cultural diversity. In order to pursue a new international
instrument on cultural diversity, Ministers and governments need
to encourage a broadly-based discussion in an effort to reach agreement
on the scope and importance of cultural diversity and its fundamental
role in social and economic development.
The first step in building this consensus could be around identifying
a global vision, objectives and principles of cultural diversity.
This could provide the backbone in the development of any new instrument
which, once elaborated, could be seen as an effective articulation
of this global approach.
Possible objectives for a cultural diversity instrument
The objective of the instrument should be to articulate a consensus,
and a commitment to sustain and promote cultural diversity as key
to the prosperity, security and participation of citizens in the
social, economic and cultural life of societies. A instrument should
recognize the special role played in societies by cultural goods
and services, and should enable countries to maintain policies that
promote their culture. It should also be grounded in the fundamental
human rights of individuals, while respecting the collective rights
of communities. It should be enforceable.
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Cultural diversity principles - an illustrative starting point
As a starting point for building a consensus on objectives and
principles, the Working Group considered the illustrative set of
ten cultural principles drawn from existing instruments and based
on the Catalogue of International Principles Pertaining to Culture(17)
outlined below:
- The fundamental importance of the Universal Declaration of Human
Rights and in particular Article 27 - “Everyone has the right
freely to participate in the cultural life of the community, to
enjoy the arts and to share in scientific advancement and its
benefits”.
- The preservation of cultural heritage is a crucial component
of identity and self- understanding that links a community to
its past.
- Art plays an essential role in the life and development of the
individual and society States must protect, defend, and assist
their artists and artistic freedom.
- Linguistic and ethno-cultural diversity helps maintain and develop
national and international cultural richness and traditions and
reflects a commitment to common values and social cohesion.
- Authors and rights holders have the right to the protection
of their moral and material interests regarding creation.
- “Cultural goods and services should be fully recognized
and treated as being not like other forms of merchandise.(18)
- Social and cultural fulfillment of the individual is a key element
of human development and must be integral to sustainable development
approaches.
- Cultural exchange and cooperation are necessary to build wider
cultural allegiances in an increasingly globalized world and are
important tools in building human security.
- Cultural diversity includes an openness to a wide range of cultural
influences and recognizes the importance the production and distribution
of local content.
- Governments have a role to play in preserving and promoting
cultural diversity and respect for cultural diversity is an important
element of developing good governance.
This illustrative list of principles may not be sufficient to respond
to the global cultural diversity challenges that have been identified.
Many of the building blocks central to the effective support of
cultural diversity, such as shared values, human development, human
security and governance require further consideration in relation
to these principles. The gaps in the range of international mechanisms
and tools that currently form the policy “safety net”
for cultural diversity need to be addressed in the elaboration of
an international instrument.
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Development of an instrument concept
There are a number of elements that must be considered in terms
of a international instrument. These would include vision, objectives
and principles of cultural diversity, scope, permissible and excluded
measures, the relationship of this instrument to existing instruments,
dispute settlement, and options regarding where or how the instrument
would be negotiated. A clear time line for the elaboration of the
instrument would also need to be developed.
Developing such an effective and enforceable approach will likely
require intensive efforts over the medium term requiring action
by countries individually and collectively. It will be therefore
important for Ministers in Santorini to consider both domestic and
international policy challenges. Internationally, Ministers need
to address elements of the instrument and provide direction for
Working Group on key objectives and scope. Ministers will also need
to inform their own domestic policies.
III - NEXT STEPS IN SUPPORT OF CULTURAL DIVERSITY
International and domestic responses
It is clear to the Working Group that substantial research and
discussion is required to effectively develop policy responses to
the broad cultural diversity challenges facing countries.
- The Working Group identified three areas which, if Ministers
so direct, could form the basis for its activities during 2000-2001:
- Map out current national cultural policy frameworks,(19) to
identify what type of other permissible domestic policy strategies,
tools and capacity-building efforts are necessary to support cultural
diversity effectively.
- Identify, among Network members, how human security, social
cohesion and identity can be better integrated as important elements
of cultural diversity management and capacity- building.
- Elaborate further on a cultural diversity instrument, with priority
placed on developing vision, principles and objectives, as well
its scope and structure.
Priority issues for Ministerial discussion: towards concerted international
action
Building on the findings and considerations to date, the Working
Group raised several questions relating to the development of an
international instrument that could guide the future deliberation
of the Network and the Working Group. Ministers would be encouraged
to consider these questions at Santorini.
How can the Network solidify support for the concept of a instrument
on cultural diversity on the international agenda?
Specialized work on cultural diversity should remain for now on
the Network’s thematic agenda. The International Network on
Cultural Policy is ideally placed to develop aspects of the instrument
which will allow Ministers to be further informed on these issues
as they engage within their own countries and in other fora. While
it was agreed that the focus of work would be on the cultural diversity
- economic liberalization/ technology issue, it was considered important
that other cultural diversity and globalization issues should also
be pursued.
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What are the necessary steps to articulate common objectives
and principles of a international instrument?
Building an international consensus on objectives and principles
is a necessary first step in creating an international instrument
and is an issue Ministers need to deal with. Cultural diversity
principles could be developed in broad terms and further developed
in specific provisions of the instrument.
Illustrative principles should be cross referenced for completeness
against other essential values of cultural diversity. A more complete
set of principles that captures the broad “building blocks”
associated with the cultural diversity concept could be developed
by the Network and Working Group, and subsequently shared among
other appropriate multilateral fora. Ministers are asked to provide
guidance on the refining and augmentation of the principles discussed
by the Working Group.
What needs to be included and what process needs to be undertaken
to determine the nature and scope of the instrument?
Identifying the gaps between existing international commitments
and the building blocks associated with the effective promotion
of cultural diversity is critical in defining the scope of an instrument.
This could include a variety of issues ranging from economic liberalization
and technology to languages. In terms of the nature and scope of
the instrument, various models of a proposed instrument are possible
and could be elaborated for eventual ministerial consideration.
The instrument should be enforceable in respect of parties’
obligations. The process of determining an instrument involves expanding
consensus among other multilateral fora, private sector and civil
society stakeholders. The scope and structure of a international
instrument should form the basis of the next report to Ministers
from the Working Group, no later than the 2001 meeting in Switzerland.
Where should it be housed?
The question of where any eventual instrument should be housed
and its relationship to other international agreements is premature
and will depend to a large extent on the nature of the instrument.
This question will have to be revisited once the structure and scope
of the instrument are defined more clearly.
Other issues for Ministerial discussion - action on the domestic
policy agenda
In addition, the following questions arose during the Working
Group’s discussions surrounding domestic cultural policy reform
and the management of cultural diversity. These questions should
be the basis of the work of the Network and Working Group activities
and guided by the views of Ministers:
What steps can governments take at the national level within
their cultural policies to commit to cultural diversity?
Cultural diversity is often understood in relation to economic
liberalization, but it also encompasses the relationships between
different cultural groups living within the same geographical or
political space. As a result, governments face the challenge of
creating and sustaining an open atmosphere, and developing the appropriate
conditions for the various groups to thrive. This can be done in
a variety of ways. For instance, cultural diversity may be encouraged
through policy intervention by granting specific legal or political
status or may arise from the integration of new immigrants therefore
advancing intercultural dialogue. Whichever approach is pursued,
it is clear that dialogue, mutual understanding and the establishment
of some shared values must constitute the basis of any effective
cultural policy.(20)
What domestic cultural policy tools need to be further developed
to maintain and promote a diversity of expression within countries
in a globalized world?
There is a growing concern that current policy tools in place
to support cultural policy objectives within countries will prove
increasingly ineffective in the face of economic globalization and
accompanying technological change. How new technologies can be used
to promote and enhance national and international cultural diversity
needs to be explored. The Working Group has also identified copyright,
intellectual property and competition policy as important issues
to be addressed.
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(1) Prepared for the Working Group by Vladimir Skok, Chair (Canada),
Paule Iapinni (France), Marios Kostakis (Greece), Carol Steinberg
(South Africa), and Bernard Wicht (Switzerland) in cooperatio
(2) Experts from the following Network countries participated
in Working Group meetings to date: Barbados, Canada, France, Greece,
Hungary, Ivory Coast, Mexico, Norway, Russian Federation, Senegal,
Slovakia, South Africa, Sweden and Switzerland with experts from
UNESCO, World Bank, the European Commission, ERICarts Research Institute
and the Network Liaison Bureau. In addition to reporting on its
activities through the Network Liaison Bureau Web Site, Working
Group representatives briefed the Contact Group of Ministers meeting
in Athens, Greece in May 2000. The Contact Group of Ministers confirmed
that the Working Group would provide its findings and advice in
support of discussions at the 3rd Network Ministerial meeting in
(3) Baeker, Greg, Inventory of Cultural Challenges and Opportunities,
May 2000. An analysis of responses of a Working Group survey from
Canada, Croatia, Greece, Guyana, Iceland, Norway, Saint Lucia, Senegal,
Sou
(4) Bernier, Ivan, Catalogue of International Principles
(5) Wicht, Bernard, Managin
(6) Network Liaison Bureau, List of International Instruments
which make
(7) Network Liaison Bureau, Recent International Initiatives
on Cultural Diversity: draft for consideration.
(8) Wicht, Bernard, Managing Cultural Diversity, June
(9) Baeker, Greg, Inventory of Cultural Challenges and
(10) Baeker, Greg, Inventory of Cultural Challenges and O
(11) Wicht, Bernard, Managing Cultural Diversity, June
(12) Ibid. page 1.
(13) Baeker, Greg, Inventory of Cultural Challenges and
(14) Bernier, Ivan, Catalogue of International Principles Pertaining
to Culture, June
(15) Ibid. page 70.
(16) Ibid. page 70.
(17) Bernier, Ivan, Cata
(18) Stockholm Action Plan, 1998, Objective 3.
(19) The Working Group took note of the initiative by the Council
of Europe in developing a comparative compendium of cultural policy
frameworks which have been developed for it by the ERICarts cultural
policy re
(20) Wicht, Bernard, Managing Culture
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