Documente Academic
Documente Profesional
Documente Cultură
Universit Lumire-Lyon 2
Student:
Kristina Radovi, E 01/15
Course:
Cultural Policy and Cultural Rights
Professor:
Predrag Cvetianin, PhD
The system of cultural heritage, as well as policies in this field, have been characterised
by a high level of centralization, since its establishment. Cultural heritage policy was created by
the Ministry of Culture and from the culmination in political changes in 2000, it has gone
through several stages, all the while getting more liberated from administrative limitations and
becoming more independent, making the private sector more involved (Miki, Draa Muntean
2014: 146).
The past decade represents a period of stagnation in the work of institutions that are
concerned with the protection of immovable cultural properties, like the Institute for Protection
of the Cultural Monuments of Serbia, as the central body, and many other institutions. This
stagnation is caused by economic, political and administrative problems and circumstances, but
also insufficient funding, all of which makes the realisation of planned conservation activities
unachievable (Dragievi-ei, Miki, Tomka 2015: 28).
One of the biggest issues of the cultural heritage system in Serbia is financial, which is
essentially linked to the involvement of the state in this matter. Under the new Law on Culture
from 2009, Ministry of Culture must use open competitions for allocation of funds for
programmes and projects, which are not of a systemic character, nor do they have clear financial
criteria so they have very small impact on the cultural heritage system, due to the level of
investment as well as the absence of synergy amongst various stakeholders (Miki, Muntean
2014: 154; Dragievi-ei, Miki, Tomka 2015: 28-29). Traditionally, a primary economic
instrument of cultural policy in Serbia is direct budgetary funding, in form of subsidies and
grants. Only a small number of private companies support cultural heritage at the moment in
Serbia (like Banca Intesa, Mercedes-Benz), and the regulations do not provide sufficient
incentives to stimulate private investments in culture (Miki, Draa Muntean 2014: 155).
Because of the financial crisis and turbulences in public finance, budgetary financing is uneven,
irregular and predominately insecure. The majority of funds for cultural heritage institutions are
provided by a single source (Miki, Draa Muntean 2014: 156). Due to lack of programme
budgeting, where projects are financed according to available resources in the current year and
not based on strategic priorities, revitalisation of a single site can be prolonged by several years
(Dragievi-ei, Miki, Tomka 2015: 29).
From 2006, there is a visible change in the policies for development of proactive tourism,
on a local level. Local authorities are putting effort in developing cultural heritage as a tourist
resource, by promoting sites and their value as a touristic attraction. Right now, theres a small
number of immovable cultural monuments that are equipped for tourist visitations and even a
smaller number of them are generators of domestic tourists. Exceptions to the rule are
Viminacijum, which became an archaeological theme park after numerous revitalisations and
restructurings, and Gamzigrad, which got included in the World Heritage List. Both experienced
an increase in visitors, after abovementioned activities (Miki, Draa Muntean 2014: 147).
The rapidly growing tourism sector, looking to develop tourism products based on
cultural tourism, has not been satisfied with the management of cultural heritage sites by the
responsible institutions (Miki, Draa Muntean 2014: 151). Very important issue is unsystematic
tourism exploitation of heritage sites, with the lack of investment in conservation, preservation
and valorisation of heritage (Dragievi-ei, Miki, Tomka 2015: 29), which is why tourism
sector opts for different solutions. Good example is a public enterprise, created in 2011 as a
Visitors Centre Museum of Lepenski Vir, whose role is to manage this prehistoric
archaeological site, which was until then managed by the National Museum in Belgrade (Miki,
Draa Muntean 2014: 151). Furthermore, there is a lack of development of projects of cultural
heritage rehabilitation and there is no affirmation through such projects of the developmental
possibilities embedded in intrinsic values of cultural heritage. Its necessary to affirm the
perception of cultural heritage as creative capital, not only of local communities, but at national
level as well. This would contribute to understanding cultural heritage as an asset that creates a
value (Miki, Draa Muntean 2014: 156).
PPP in Serbia
between the public and private partner should depend on their ability to manage it (Vojnovi,
Piuk 2014: 19). This is an important legal instrument which was in Serbia used mostly in
construction work (ports, roads, public parking), public transportation, exploitation of natural
resources, public utility activities etc. but not once in the area of cultural assets, especially for the
conservation of cultural heritage.
There are many successful examples that come from Germany, where monuments
protection is the responsibility of the Federal States, who each have their own legal framework.
In the state of North Rhine Westphalia, this area is regulated by the Act for the Conservation of
Ancient Monuments (Bader, Gechter 2011: 29). In the city of Cologne, lex colonia guarantees
independence of archaeology, meaning that it doesnt depend on the Department for the
Preservation of Archaeological Monuments. The law of North Rhine Westphalia states that the
discovery of archaeological remains are to be reported to the authorities, after which the
abovementioned Department can suspend any building activities up to six months, in order to
organise necessary excavations. They are also involved in the planning processes, building
permit applications and they can even allow expropriation of private owners of monuments. But,
in reality, they sign contracts with private investors, where the latter pays a certain amount for
the excavation or they hire a company to manage it, so the Department saves money and in the
case of preservation of findings, the agreement can be changed or even rejected, while
conditioning the investor to change the building plan (Bader, Gechter 2011: 30). One example
from Cologne is from a C&A store, in whose basement a Roman forum is located. They
preserved it and displayed it for visitors, with information panels showing reconstruction
drawings and detailed information (Bader, Gechter 2011: 31). Another example from Cologne is
the Ubian Monument, Colognes oldest stone monument and the oldest Roman ashlar building
north of Alps. After the excavations, the plot was bought by private owners, who couldnt
undertake any activities that could harm the monument or restrict access to it. So this monument
became an object of PPP, which includes cooperation with the owner, in order to upgrade the
economic value of the building and make it accessible to the public (Bader, Gechter 2011: 3234).
In UK there are also several examples of PPP projects, where private and public sectors
cooperated, in new construction on archaeologically sensitive sites. One of them is the Browns of
Chester project, concerning a Roman and Medieval site in Chester, located in the backyard of a
building, bought as an extension to a Browns department store. Understandably, they wanted to
build a trading floor, which would mean losing a rare undisturbed area of archaeological
deposits. The planning committee decided to allowed developers to build, but they had to pay a
substantial amount of money for the major excavation. The construction team had to develop
new designs and calculations for a new building, which would disturb the site in the least
possible amount, so it would include a viewing platform overlooking the dig, making this site a
great tourist attraction (Barton 2012: 37).
In Russia, funding in the field of cultural heritage is regulated under the federal law
About Cultural Heritage (history and culture monuments) of the nations of the Russian
Federation and the federal target program Culture of Russia (2012-2018). President of the
Republic of Tatarstan established a Republican Fund for restoration of monuments of history and
culture, also a target program Miras-Heritage as well as the law About Public-Private
Partnership in the Republic of Tatarstan were introduced, to maximise the preservation of
historical and cultural heritage (Absalyamov, 2015: 214). Many of the Tatarstan monuments
need preservation work, because of the direct and indirect effects of devastating wars and
revolutions. During 20s and 30s many monuments of XVI century were destroyed on the
Sviyaga Island, as well in ancient Bolgar, where most of the XIII-XIV century monuments
survived only as ruins. This is why a 4 year federal and republic program, called Cultural
Heritage of Tatarstan: Sviyaga Island and the ancient city of Bolgar, was approved
(Absalyamov, 2015: 215). As a result of the formed PPPs, in 2011-2013, 14 objects on the
Sviyaga Island and 10 in Bolgar where restored. Private investors where companies like
Kamaz, PSC TAIF, Lukoil, Metalloinvestetc. Some of these facilities where adapted for
commercial use, like the House of Kamenev on Sviyaga Island, in which a hotel was opened
and whose Stable Yard was converted into a tourist-etnographic complex (Absalyamov, 2015:
216).
PPP proved very valuable in the case of the famous archaeological site at Herculaneum,
Italy. For several reasons maintenance programmes for this publicly owned site stopped in the
1980s and 1990s. The reasons were not only of financial nature, but also due to absence of
instruments and expertise for the allocation of funding. The site decayed and was neglected to
such extent, that the situation attracted international attention (Thompson, 2007: 192-193). Since
this complex conservation problem couldnt be resolved with the resources of the
Soprintendenza Archaeologica di Pompei alone, an NGO called The Packard Humanities
Institute showed interest in helping, and a partnership agreement was signed The Herculaneum
Conservation Project (Thompson, 2007: 194). Joining of these two sides helped address
economic issues, but they also dedicated their energy towards improvement in conservational
approaches and knowledge, thanks to the external expertise being united with the experience of
public officials (Thompson, 2007: 195). The rate of the decay has been brought under control,
and long-term strategies are being explored to improve conservation methodology (Thompson,
2007: 199).
In these examples we can see how cooperation between public and private sector can
greatly contribute to amelioration of the conditions of immovable cultural heritage in many
different ways. This is an issue that is shared by all the countries in the world, which is why this
type of legal instrument is applicable in different environments. The benefits of PPPs are
substantial and they include many layers. The most important one is the preservation of cultural
heritage, of which the government, in the current financial crisis, is not entirely capable of. The
government, through a PPP, can transfer some of it competencies regarding protection and
revitalisation of immovable cultural heritage to private investors and NGOs, and alleviate itself
of the financial pressure, to some extent or even completely. Apart from that, cultural and
touristic significance of the area would be improved, generating interest and value, but also
financial situation, which is something that should also be taken into account. This kind of
cooperation leads towards a possibility that when the government takes over the site in question,
after the expiration of the agreement, it would be already enough self-sustainable and require
minimal investment to remain open.
There are some concerns regarding PPPs, mostly coming from those who are heritage
advocates and these are legitimate. One of them could be the fear of not taking into account
heritage interests completely, when handing over the public property to the private investor. If
the government doesnt monitor activities conducted by the investor, and they prove to be
degrading for the property in any way, existence of PPP could be put into question. This is
further linked to the lack of transparency and insufficient accountability of the government, if
something like this would happen (Rypkema 2008: 145). Question of transparency is regulated
within article 74 of the Public-Private Partnerships and Concessions Act of Serbia, which states
that public contracts shall be recorded in the Public Contracts Register and that it shall be
public (Article 74, paragraph 1 and 3). To this day, this Register has not been established. This
issue was already been discussed in public, and it raises questions and concerns about the
transparency of these types of co-operations and their legitimacy (Radojevi 2015; abi 2014).
Another concern is that heritage conservation is being sacrificed for short-term profits (Rypkema
2008: 146). This approach is known as Disneyfication, which is turning heritage monuments
into consumer-oriented projects, while inflicting considerable touristic destruction on heritage
resources. There is considerable lack of personnel trained in preventive conservation, and of
educational training for new expertise and skills, which further broadens this problem
(Dragievi-ei, Miki, Tomka 2014: 29).
Recommendations
If the government can overcome these concerns, and ensure ethical, transparent and
continuous approach every step of the way of the PPP process, there is no reason why this
instrument should not be implemented in the sector of immovable cultural heritage as soon as
possible. Many of Serbias most important archaeological sites and monuments are closed or
unavailable to public, mostly due to lack of funding. Archaeological excavations and
interventions are conducted each year, but very few of these, in the end, become open to the
public eye. This is where PPPs can be used as a way to overcome the issue of finance and raise
awareness about the effectiveness of this instrument, which can furthermore raise awareness
amongst the public about the importance of our immovable cultural heritage.
References
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heritage preservation, Procedia - Social and Behavioral Sciences 188, pp. 214-217
Bader, A. and Gechter, M. (2012) Public-Private Partnership models based on examples from
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