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CHAPTER SEVEN: CONCLUSIONS AND RECOMMENDATIONS
This chapter summarizes the conclusions drawn by the Committee from
the testimony of witnesses and the submissions received.
Creators
We need creators. By virtue of their inspirational and intuitive nature,
creators often challenge the status quo, placing them at the very cusp
of social change and at the foundation of all our cultural enterprises.
Indeed, without their commitment to their talent and their craft, our cultural
industries would be relegated to the distribution of foreign voices and
perspectives.
Canada's artistic community is truly national in character with creators
in every discipline and form of creative expression. Their achievements
and successes attest to the high quality of their work and their contributions
to Canadian culture. Although the Committee agrees with witnesses who pointed
to the maturity of Canada's creative community, the income levels of many
individual creators, despite their comparatively high levels of education,
remain generally lower than national averages. The Committee believes that
existing financial support measures for creators are too modest. Support
should be increased and provided for longer periods of time.
The Committee recognizes the central importance of a comprehensive legal
framework for the protection of creators. Specifically, copyright legislation
should be vigilantly monitored and amended to keep pace with technological
change. In addition, federal status of the artist legislation will fulfil
its purpose only if it is accompanied by complementary provincial legislation.
The Important Role of Canada's Cultural Agencies
Canada's federal cultural agencies are one of the main vehicles of support
for creators. These agencies are the principal means through which the
federal government provides policy and program support to the cultural
sector. Over the years, each has developed a strong and dynamic relationship
with its constituency, thereby promoting an appreciation of the changing
needs of the organizations they serve and support.
Witnesses appearing before the Committee repeatedly referred to the
leadership roles played by federal cultural agencies. The testimony makes
it clear that these agencies are expected to play important roles in the
future of Canadian cultural development, just as they have done in the
past.
On a basic level, the existence of public funding and support through
institutions such as the Canada Council for the Arts, the National Film
Board, and the CBC has provided generations of training and support to
our writers, artists and creators. We all reap the benefits of that support
and suffer the consequences when it is not there.1
Canadians still believe that federal cultural agencies have an important
role to play. It is clear from the testimony of the witnesses that the
challenges currently facing these agencies are as demanding of vision and
imaginative management today as they were when they were first created.
Federal cultural agencies continue to be the flagships that give strategic
focus and direction to federal cultural policies. A collegial approach
to the exercise of their respective mandates has become essential.
Self-Employment
Many creators are self-employed. Self-employment raises questions about
legal, health, insurance and tax matters, that are not unique to the cultural
sector. The Committee sees the clarification of the rights and obligations
of the self-employed as fundamental to the successful growth and development
of cultural life in Canada.
The issue of self-employment is complex and cuts across several departments
and most orders of government. Nonetheless, the implications of being self-employed
must be examined as soon as possible. While this report's particular concern
is Canada's cultural life, all Canadians face the challenges of an increasing
shift from employment as a wage earner to self-employment. The solutions
must be workable for all Canadians, not only for creators and artists.
Celebrating Creative Vision
One of the fundamental objectives pursued by federal cultural policy
has been the development and growth of cultural expression in both of Canada's
official language communities. Based on the evidence it received, the Committee
believes that the federal government has been successful in reaching that
objective. The Committee also notes that more recent federal government
initiatives, such as those of the Canada Council for the Arts, have contributed
to burgeoning cultural expression in our Aboriginal communities. The resonance
of those distinctive voices has given Canadian cultural life a unique richness
and vitality.
Nevertheless, the Committee has concluded that much more remains to
be done. Exceptional artists show the fundamental importance of creativity
and imagination. Their work, passion and commitment to their art can lead
the way. However, just as artists have to be creative, the cultural policy
of the federal government must also be creative. In the years to come,
the cultural policy of the federal government should strive to ensure that
more cultural products, initiatives and ideas cross borders between people.
Key Role for the Government of Canada
The sharing of cultural expression within and between regions of Canada
is a subject that was addressed repeatedly by witnesses appearing before
the Committee. As the Committee has noted elsewhere in this report, the
federal government has developed and implemented a number of programs that
support such activities. These include tours by performing arts companies,
travelling museum and gallery exhibitions and the distribution of books
to all regions, both rural and urban. However, as the Committee has also
seen, during periods of financial constraints, these programs are often
the first to be affected. Unfortunately, they are not perceived to be as
important as those that contribute financially to the continued operations
of cultural organizations. As Richard Hornsby of the New Brunswick Arts
Board told the Committee:
I was enthused to hear . . . that the National Arts Centre Orchestra
is actually considering touring out east this fall for the first time,
I believe, in 12 to 14 years . . . This is encouraging . . . We need to
be able to speak to each other and send our products across the country
and we need help to do that.2
The Committee understands the imperative of survival and the importance
of ensuring that cultural organizations continue to thrive in their own
communities. However, the Committee believes that there is a second imperative.
In a country as geographically vast and as socially and culturally diverse
as Canada, exchanges between regions and between various regional cultural
expressions contribute enormously to the strengthening of our identity
and nationhood. The federal government alone has the mandate to maintain
communication and exchanges between Canada's regions.
A number of programs are already in place, but the federal government's
commitment to them is uneven. There is a demonstrated need for them and
they enjoy strong public support. It is time the federal government gave
them the priority they deserve. They will ensure that Canadians share and
are given the opportunity to enjoy one another's cultural vitality and
bring all parts of our country closer together.
Reducing the Rate of Loss
Budget constraints have caused heritage institutions to review and revise
their collection strategies and the criteria they use to decide what to
keep. In many institutions, the period of difficult internal reflection
resulted in a more finely tuned collection and selection strategies. However,
the Committee also noted another issue pertaining to collections practices
in heritage institutions. Just as some items from heritage collections
were "de-accessioned" because of their marginal relevance, others
are being lost because the budget to acquire or keep them is lacking. Material
in Canadian heritage institutions by its very nature is subject to damage,
deterioration and even permanent loss, unless it is preserved through a
variety of conservation techniques.
There is a line to be drawn between conserving too much material in
the interests of not losing anything valuable, and not preserving enough
so that it is lost. There are two aspects to this issue. First, some preservation
problems are more urgent than others. Into this category fall heritage
materials that will be lost unless funds are found to preserve them. Many
have heard the story of the television series, La Famille Plouffe,
which was tremendously popular at the time it was broadcast in Quebec.
This material, which was of enormous historical value to Quebec and to
the country, was lost forever because the funding needed for its preservation
came too late. The Committee believes that this experience should not be
repeated in any Canadian library, archive, museum or gallery.
The Committee, however, has no wish to become involved in the complex
subject of selection criteria. There are highly competent professionals
in our heritage institutions who spend their careers making important decisions
about what to acquire, what to keep and what not to keep. The Committee's
concern, then, is that budgets, overall, are sufficient to avoid a repeat
of the failure to preserve La Famille Plouffe.
Paying Attention to Capital Budgets
Although governments have contributed to the building of Canada's cultural
infrastructure there are serious gaps in the support programs for maintenance
and improvements. Many buildings erected to celebrate Canada's Centennial
in 1967 are now in need of repair. Prudent government suggests that the
costs of maintaining this infrastructure be recognized and that appropriate
arrangements be made to plan for necessary repairs and improvements. Little
is gained and much is lost if the situation is ignored until costly emergency
repairs are required.
The Need for Focus
This report is not the time or place to review all of the changes that
have occurred over the past ten years, nor can anyone foresee exactly what
will emerge in the near term. However, two things seem clear. First, there
will continue to be change. Second, technological change, in whatever form,
will undermine some advantages Canadians now enjoy because of particular
cultural policies and programs.
These changes will have a profound impact on the notion of Canadian
content rules. Various federal government regulations require Canadian
television and broadcasting companies to provide Canadian content. Other
policies and programs, such as federal support for the CBC, enhance access
to Canadian content. These support measures worked well in an era when
there was a small number of radio and television broadcasters. However,
the creation of new media distribution mechanisms and the proliferation
of cable television channels could lessen the effectiveness of existing
regulatory mechanisms.
The implications of these developments for governments are profound.
They not only signal the need to reinvent the structures and business of
government, but also the way in which consultations are undertaken. This
includes the way legislation, policy and programs are developed, implemented,
evaluated and revised.
A final point must be made about the speed of the social and technological
change. The Committee is convinced that we do not have the luxury of a
decade or two to adapt, therefore, the Government of Canada must act now.
Canada needs creators because the works they create are intimately linked
to our sense of place and our sense of being. Creators cannot accomplish
this on their own, even though much begins in a private moment. To succeed
they need the opportunity to pursue their art, which must include the opportunity
for training, ways to produce and distribute their works and an audience.
Governments can help but as this report has shown much depends on individuals
and the way they respond to the gifts creators bring.
A living culture must be shared, enjoyed, lived in, preserved and passed
on. The Government of Canada cannot create a work of art but it can do
much to encourage the creators and visionaries who will give Canada the
gift of a living culture to enjoy, preserve and share with the world.
RECOMMENDATIONS
Recommendation 1
The Committee recommends that:
1.1 The Canada Council for the Arts, as the main source of federal
government support for creators, continue to provide grants to creators
that enable them to devote themselves full-time to a creative project.
The Government of Canada should encourage long-term and sustainable support
to creators.
1.2 The additional resources required by the Canada Council for the
Arts to implement Recommendation 1.1 should be provided.
1.3 The Department of Canadian Heritage, in partnership with the
Canada Council for the Arts, develop a plan to secure the funding proposed
in Recommendation 1.2 and report back to this Committee within one year
of the tabling of this report.
Recommendation 2
The Committee recommends that:
2.1 The Department of Canadian Heritage ensure ongoing federal initiatives
examining issues of self-employment include the interests of self-employed
artists and creators.
2.2 The Minister of Canadian Heritage appoint a task force to review
self-employment issues in the cultural sector. The task force should include
representatives from the Department of Revenue, the Department of Finance,
and the Department of Human Resources Development Canada, and should report
its recommendations within one year.
Recommendation 3
The Committee recommends that:
3.1 Existing federal programs should also support the creation of
traditional cultural materials (books, music, films, and images) in electronic
formats. In addition, the Department of Canadian Heritage, in consultation
with the Department of Industry and the Department of Finance, should encourage
investment in enterprises that market and sell access to these products;
and
3.2 The Minister of Canadian Heritage, in consultation with the Ministers
of Industry and Finance, develop a strategy that implements Recommendation
3.1.
Recommendation 4
Legislation implementing the two World Intellectual Property Organization
(WIPO) Treaties should be introduced by the government and enacted by Parliament
as soon as possible.
Recommendation 5
The Government of Canada should take appropriate measures to ensure
that amendments to the Copyright Act keep pace with technological change.
Recommendation 6
The Committee recommends that the Department of Canadian Heritage
invite its counterparts in provincial governments to put in place complementary
legislation relating to the status of the artist.
Recommendation 7
The Committee recommends that the federal government affirm its commitment
to the continuing development of Canada's national training schools and
support additional national training schools with appropriate resources
as they emerge.
Recommendation 8
The Committee recommends that the Government of Canada's support
to national training schools be provided on a stable, multi-year basis.
Recommendation 9
The Committee recommends that the federal commitment to professional
training for arts and cultural industries and institutions give priority
to the development of co-op and intern programs. These programs should
promote strong links between training institutions and arts and cultural
organizations, allowing trainees to earn while they learn.
Recommendation 10
The Committee recommends that the federal government, through sector-based
training and professional development councils, develop a shared cost program
with cultural organizations that is designed to provide professional training
in the effective use of new media.
Recommendation 11
The Committee recommends that the Departments of Canadian Heritage
and Human Resources Development Canada develop new media programs and training
packages that can be used by community-based cultural organizations.
Recommendation 12
The Committee recommends that the Department of Canadian Heritage
and the Department of Industry jointly develop a program that will support
more research and study of domestic and international cultural issues in
Canada's graduate schools through the financial involvement of key federal
cultural agencies.
Recommendation 13
The Committee recommends that one year after Recommendations 11 and
12 have been implemented, the Department of Canadian Heritage, in partnership
with other federal departments and agencies, conduct a review of federal
training support initiatives to determine the overall adequacy of the support
measures and their consistency in application among different client groups.
Recommendation 14
The Committee recommends that the Department of Canadian Heritage,
in addition to existing ownership and citizenship requirements, develop
complementary policies and programs which focus on, ensure and enhance
Canadian content in cultural works.
Recommendation 15
The Committee recommends that the Department of Canadian Heritage
review its financial support measures to clarify the distinction between
for-profit and not-for-profit cultural organizations.
Recommendation 16
The Committee recommends that the Department of Canadian Heritage,
in consultation with appropriate cultural agencies, develop mechanisms
to ensure sustainable, long-term, multi-year funding for not-for-profit
cultural organizations.
Recommendation 17
The Committee recommends that support for the developmental phase
of a new company (start-ups) be designed to include specific performance
targets and that there be a sunset clause for federal support to the start-up
phase of the company's development.
Recommendation 18
The Committee recommends that in the case of viable, for-profit,
commercial enterprises, federal support should be targeted for specific
projects or ventures.
Recommendation 19
The Committee recommends that an independent, objective and cross-disciplined
analysis be commissioned by the Department of Canadian Heritage to develop
strategies that promote essential links among production, distribution
and marketing.
Recommendation 20
The Committee recommends that within a year of the presentation of
this report, the Minister of Canadian Heritage should ensure that the department's
program objectives relating to the essential links among production, distribution
and marketing and those of its portfolio agencies are complementary.
Recommendation 21
The Committee recommends that the federal government create a special
committee of cabinet, including the ministers of Canadian Heritage, International
Trade, and Industry and Finance, to develop a policy framework that will
provide Canadian cultural industries with the optimal environment to sustain
themselves and grow, both at home and abroad.
Recommendation 22
The Committee recommends that the Department of Canadian Heritage
identify potential changes to the structure of government that would enable
the Government of Canada to respond in a timely manner to changes in the
cultural sector.
Recommendation 23
The Committee recommends that the Department of Heritage, in collaboration
with the appropriate research granting and cultural agencies, establish
a network of centres of excellence for new media. Establishing a network
of centres of excellence for new media will require a feasibility study
that should examine substantive partnerships with educational institutions
and the private sector.
Recommendation 24
The Committee recommends that:
24.1 The Departments of Canadian Heritage and Industry jointly work
with those involved in new media with respect to obtaining copyright clearances
more easily and in identifying the role of collectives in the administration
of copyright.
24.2 The Department of Canadian Heritage and Industry Canada jointly
fund a study to determine whether a central clearing mechanism for obtaining
copyright permission to use copyright materials in new media is feasible.
24.3 The study should include at a minimum an analysis of what should
be done; the costs of doing it, an analysis of financial viability, and
the design of a fully funded pilot project. The feasibility study, including
the design of a pilot project, should be implemented within one year of
the presentation of this report.
Recommendation 25
The Committee recommends that within one year of the presentation
of this Report, the Departments of Canadian Heritage and Industry Canada
jointly develop and establish objectives and criteria for federal support
to Canada's new media sector.
Recommendation 26
The Committee recommends that:
26.1 The Canadian Broadcasting Corporation receive continuing, stable
funding so that it remains a public, non-profit corporation for the common
good.
26.2 CBC Radio receive sufficient levels of stable, sustained funding
so that it need not resort to corporate sponsorships, commercial or non-commercial
advertising.
26.3 CBC Television receive sufficient levels of stable, sustained
funding so that advertising can be reduced to minimal levels.
Recommendation 27
The Committee recommends that the Department of Canadian Heritage
increase funding to support more cross-Canada tours and exhibitions.
Recommendation 28
The Committee recommends that the federal government adopt the approach
proposed by the Sectoral Advisory Group on International Trade (SAGIT)
through which Canada would call on other countries to develop a new international
cultural instrument that would acknowledge the importance of cultural diversity
and address cultural policies designed to promote and protect that diversity.
Recommendation 29
The Committee recommends that the initiative taken by the Minister
of Canadian Heritage to ensure continued diversity in cultural expression
internationally be placed at the centre of the federal government's foreign
policy and international trade agenda.
Recommendation 30
The Committee recommends that the Department of Canadian Heritage
form an advisory group composed of individuals experienced in creation,
cultural policy and the marketing and distribution of cultural materials,
to advise the minister on issues affecting culture. This group should be
modeled on the SAGIT approach used by the Department of Foreign Affairs
and International Trade, and Industry Canada.
Recommendation 31
The Committee recommends that the Department of Canadian Heritage
take immediate action to obtain additional resources and to establish a
fund dedicated to the preservation of items of national significance that
are in danger of being lost through deterioration. The Department of Canadian
Heritage should present a progress report to this Committee within two
years of the presentation of this report.
Recommendation 32
The Committee recommends that the Government of Canada re-establish
a capital fund over three consecutive fiscal years, starting in 2001-2002,
or sooner if possible, for essential maintenance to Canada's deteriorating
cultural facilities.
Recommendation 33
The Committee recommends that the Government of Canada establish
a long-term financial strategy to deal with Canada's deteriorating cultural
facilities.
Recommendation 34
The Committee recommends that the Department of Canadian Heritage,
in consultation with Canada's research agencies, examine the broadening
of the criteria for research funding eligibility to ensure research conducted
by Canada's heritage institutions is supported, where appropriate.
Recommendation 35
The Committee recommends that the Department of Canadian Heritage
work jointly with key federal heritage institutions and appropriate federal
departments to ensure that community-based heritage institutions continue
to be an access point for information about programs, services and initiatives
of relevance to Canadians offered by federal heritage institutions.
Recommendation 36
The Committee recommends that a Canadian archival information network
be created that is modeled after the Canadian Heritage Information Network.
Recommendation 37
The Committee recommends that the Department of Canadian Heritage
ensure the collection of statistics on cultural activity be of the same
quality and timeliness as those now available for other sectors of the
Canadian economy.
Recommendation 38
The Committee recommends that the Canadian Arts Consumer Profile
of the arts and heritage sector (conducted in 1991-92) be updated and expanded.
Recommendation 39
The Committee recommends that the Department of Canadian Heritage,
in consultation with appropriate federal departments, investigate the feasibility
of developing incentives that provide volunteers with tax relief for legitimate
expenses associated with their volunteer activities in the cultural sector.
Recommendation 40
The Committee recommends that federal government programs and services
ensure access to cultural materials and activities for children.
Recommendation 41
The Committee recommends that the Minister of Canadian Heritage request
the Canada Council for the Arts review its policies and programs to ensure
that they recognize, support and encourage cultural activity in the lives
of children.
Recommendation 42
The Committee recommends that the Department of Canadian Heritage,
in consultation with the Department of Finance and the Department of Revenue,
develop amendments to legislation to further encourage donations to the
cultural sector.
Recommendation 43
The Committee recommends that within two years of presenting this
report, the Department of Canadian Heritage:
43.1 Sponsor an information sharing initiative on fund-raising, partnership
development and public awareness; and
43.2 Develop workshops to share that information with Canada's cultural
institutions, taking full advantage of the latest technology.
1 Michael
Algey, Vice-President and General Manager, ATV/ASM Division of CTV, Halifax
Round Table, February 23, 1999.
2 Richard
Hornsby, Member of the New Brunswick Arts Board, Moncton Round Table, February
24, 1999.