BRIEFING FOR THE PORTFOLIO COMMITTEE ON ARTS AND CULTURE

CHIEF DIRECTORATE: HERITAGE PROMOTION

 

The work of the Chief Directorate: Heritage Promotion is the overall management and development of South Africa’s national cultural heritage, through associated institutions (National Museums, South African Heritage Resources Agency and the National Heritage Council) and strategic national programmes such as the Legacy Projects, Living Heritage Projects and the standardization of names of geographical features.

 

1. GOVERNANCE OF HERITAGE INSTITUTIONS (A PARTICULAR EMPHASIS ON TRANSFORMATION)

 

1.1. BACKGROUND

 

The governance of both heritage and performing arts institutions is informed by the White Paper on Arts, Culture and Heritage of 1996. In relation to Heritage Institutions in particular, the White Paper advocates, amongst other things, the:

 

The Department of Arts and Culture is guided by the White Paper in executing its task of facilitating transformation of the heritage landscape so that museums and other heritage institutions reflect the ideals of a democratic political dispensation.

 

1.2 DEVELOPMENTS IN THE MUSEUMS

 

Whilst museums in the pre-1994 era served the interest of the few citizens of the country, they are now expected to reposition themselves so that they serve the entire South African population. This poses a series of challenges. These include accessibility with regard to the museum infrastructure, development of new audiences, development of human resources, implementing affirmative action policy by grooming and appointing a new generation of curators and managers across the colour spectrum, mounting exciting community outreach programmes, introducing acquisition policies that are friendly to indigenous artifacts, integrate living heritage in the form of oral tradition, oral history, indigenous knowledge systems in the museums.

 

In pursuance of the transformation ideals/agenda enshrined in the White Paper, the then Department of Arts Culture Science and Technology commissioned a feasibility study to investigate the possibility of clustering specific institutions in order to achieve the economies of scale. The Simeka Report (1998) recommended that the overall approach to heritage services be transformed in line with the national agenda for change. The report argued that the Flagship (meaning amalgamated institutions) will assist in building a progressive, representative heritage service which reflects interests of/serves all members of SA public. The report continued to suggest that the amalgamation was to result in the following:

 

 

As a corollary to these report findings, the Department embarked upon a restructuring programme that witnessed the amalgamation of formerly separate museums into flagship institutions in April 2000. The National Cultural History Museum, the South African National Museum for Military History and the Transvaal Museum were combined to form the Northern Flagship. The Michaelis Collection, the South African Cultural History Museum, the South African Museum, the South African National Gallery and the William Fehr Collection were amalgamated into the Southern Flagship Institution. This (was) is line with government policy of ensuring efficient, effective and economic use of limited resources.

 

It must be noted though that the restructuring of these institutions was not an easy process. The process had its own turbulences some of which were triggered off by resistance to change and others by delays in procuring appropriate human and financial resources. The Northern Flagship, for example, only got the Chief Executive Officer in 2003. Prior to this, the Northern Flagship was managed by three successive interim CEOs, which fundamentally compromised stability. However, there has been some shift in the way these museums have been run. The Northern flagship, in its early phases of restructuring was able to save by discarding those functions that were not necessarily the core functions of the museum. The savings were being redirected to information technology and human resource development. Similarly, the Southern Flagship was able to channel resources to market survey in order to measure the extent to which the previously neglected communities think of the museums. The findings of the survey clearly demonstrated lack of knowledge of the museums among the previously neglected people. Some of them were mistaking museums for courts of laws. This helped the institution to devise and design appropriate strategies of mounting awareness and marketing campaigns.

 

In 2001 the Department (Arts Culture Science and Technology) commissioned two feasibility studies to investigate the possibility of creating KwaZulu Natal Flagship and Bloemfontein/Kimberley Flagships. The KZN Flagship was going to be constituted by Natal, Voortrekker and Ncome museums. The draft document was presented to the Department in the presence of the then Director-General, museum directors of the Natal and Voortrekker museums and the Chairpersons of Councils of both museums. The report recommended two models of amalgamation. They were autonomous and core function models. The autonomous model suggested that the three institutions retain their original identities and only merge through the appointment of the new CEO who will oversee the overall management of the new institution. Core function model suggested that the structure follow the function. This means that there will be single institutions with the centralized management of functions. The latter was strongly recommended. It was explained, costed and developed in details. However, it was suggested that the autonomous model be done the same way before the final presentation of the report. The final report was presented in the beginning of March 2001.

 

The consultants who did the feasibility study in Bloemfontein and Kimberley submitted their report by the end of May 2001, which also pointed to the merits of amalgamating institutions in Kimberley and Bloemfontein. The report was not well received by the council members and managers of institutions and this coincided with the time when the newly established flagships (Northern and Southern Flagships) were still grappling with teething problems. This weakened the case for the then DACST to proceed with amalgamation. So this remains an unfinished business.

 

NB The flagships institutions held (hold) prospects of getting new leadership with the vision of repositioning museums so that they become more accessible to the society. This could have been a golden opportunity for the sector. An opportunity to select the right people as council members of the new institution. Appoint people with appropriate professional credentials. Appoint people who do not only believe in change, but who champion transformation. Appoint people who are dedicated to supporting the national priorities articulated by government. Such council members would have been in the in the position to identify appropriate CEOs for the new institutions. Managers whose visions will be to reposition museums in such a way that they are meaningful to a large majority of people in the country. Institutions that attract new managers from other professional disciplines and population groups in their structures of governance. Institutions that are able to get closer and closer to their clients (various cultural communities). Institutions that can justify the reasons for their existence in this transforming and globalising world. Institutions that are able to live up to expectations and priorities of government with regard to rural development, urban regeneration, skills development, affirmative action, job creation, income generation, promotion of living culture and Nepad.

 

 

    1. TRANSFORMATION BUDGET

 

 

The then Department of Arts Culture Science and Technology leveraged for the transformation budget from the National Treasury after its interaction with institutions and after its realization that some capital injection was required for transformation to occur. After receipt of funds from National Treasury, the then Minister of Arts Culture Science and Technology, Dr Ngubane set up a panel of experts to advise him on the most efficient and effective way of utilizing these resources. The panel of experts came with the following criteria for the disbursement and the utilization of these funds:

 

 

 

1.3.1 Human Resource Development (HRD). This is important because there can be no fundamental cultural transformation if the curatorship and management of institutions do not reflect cultural diversity. Key HRD related considerations should be the following:

 

 

This could hold prospects for the re-contextualization, unearthing and promotion of previously marginalized heritage subject areas which can contribute to the transformation of the sector.

A short brief (not exhaustive) list of best practice HRD models are shared to provide guidance without being prescriptive. Depending on the intent and design all models can have a transformational role. The models are:

 

 

Goal directed excursions to see and experience best-practice models provide the source from which participants can draw.

 

      1. CULTURAL TRANSFORMATION
      2.  

        This should take the form of collections, research and exhibitions that reflect diversity in their contents and presentation. These should be rationalized and modernized to portray South Africa’s rich cultural heritage.

         

      3. COMMUNITY INVOLVEMENT AND PARTICIPATION
      4.  

        This entails pro-activity in embarking upon programmes that address national priorities such as Moral regeneration, Rural development, Urban Regeneration, Poverty Alleviation, HIV Aids awareness, the promotion of indigenous knowledge systems through the use of technology and research.

         

      5. MULTILINGUALISM
      6.  

        The application of the principle of functional multilingualism/linguistic differentiation will ensure that communities located in close proximity to the institution have access in both the production and consumption of knowledge. So exhibitions and education programmes should be packaged in languages predominant in a particular province, city, town or village so that they are congruent, accessible and gain patronage by the surrounding communities before the broader South African and international communities. Multilingualism projects would strive to cater for persons with hearing and sight disabilities

      7. ESTABLISHMENT OF PARTNERSHIPS AND LINKAGES

 

Government is constantly challenged to deploy resources for addressing basic human needs. These resource-needs have resulted in limiting increases in budget allocations for the sector while needs for new commemorative structures and new institutions are on the increase. It therefore becomes incumbent upon Institutions to establish partnerships and linkages with other organizations and bodies to build good working relations and secure additional donor funding.

 

1.3.6       BUILDING AND DEVELOPING NEW AUDIENCES

 

One of the challenges facing our institutions is to attract wider audiences so that the public for which they exist can appreciate and find meaning in their existence. The onus rests upon institutions to transform their approaches and strategies and embark upon outreach and institutionally based programmes that will increase awareness and thus market the institutions to the South African public and the international communities.

 

 

 

 

1.4. MONITORING THE UTILIZATION OF TRANSFORMATION BUDGET

 

 

In the financial year 2002-2003, the Department (DACST) disbursed a sum of R6 million to five heritage institutions who submitted project proposals and their business plans. The quality of these inputs demonstrated the need for the Department to intervene by way of facilitating monitoring and capacity building programmes in the heritage institutions. The Department has called upon the services of professionals to assess the impact of transformation budget in accelerating transformation in the institutions and to help institutions in developing project proposals and business plans. This will help to eradicate the Dependency Syndrome that characterize the relationship between the DAC and institutions. The view of the Department is that the institutions must be able to develop project proposals that attract private sector investment and thus less dependence on government funding. We are looking forward to the report that will be produced by Matimu Heritage Solution, the consultancy that was commissioned by DAC.

 

 

 

 

    1.   NATIONAL AUDIT OF HERITAGE OBJECTS
    2.  

      In the 2004-2005 financial year, the Department received R7.5 million to start the process of doing the audit of the heritage objects in the museums. It is important for the country to know the state of its heritage objects because it is through this knowledge that it can develop safeguarding measures.

      South Africa has recently become the signatory to the 1970 Convention on the means of Prohibiting and Preventing the Illicit Import, Export and Transfer of Ownership of Cultural Property. Like other member states South Africa should take stock of what it has. This will help in dealing with the international scourge of illicit trafficking of cultural property.

       

      The panel will soon be recommended to the Minister. Its main task will be to develop a strategic framework and terms of reference for conducting the national audit.

       

    3. SKILLS AUDIT
    4.  

      Linked to the national audit of heritage objects is the skills audit. South Africa is experiencing the dearth of skills in the Heritage Sector. A cursory glance at our institutions, particularly museums, highlight the fact that the leadership is not only aging but also characterized by both racial and gender imbalances and yet there are no specific plans to replace them. It is therefore incumbent upon the Department to undertake the skills audit so that we can have a comprehensive understanding of what we have or don’t have. This will enable us to develop an appropriate human resource development strategy that is informed by the present reality.

       

    5. REFURBISHMENT OF THE HERITAGE INFRASTRUCTURE

 

There is an urgent need to refurbish our heritage infrastructure so that our museums can have the world class exhibition spaces, access facilities (with the special emphasis on the infrastructure of the physically challenged. A five-year plan is being envisaged which will see a phased-in/incrementalist strategy be adopted and implemented over the next five years. Government will solicit the inputs of the experts to review the existing infrastructure and make recommendations in terms of its upgrading and refurbishment in the next five years.

 

1.8 THE SOUTH AFRICAN HERITAGE RESOURCES AGENCY (SAHRA)

 

The South African Heritage Resources Agency established by the National Heritage Resources Act of 1999 is an offshoot from the recommendations of the White Paper on Arts Culture and Heritage. It replaced the old National Monuments Council. Its key responsibility is the management of national heritage resources. The NHRA advocates the three-tier system of heritage management, i.e at the National, Provincial and Local levels and the grading system into Grade 1,2,3 respectively.

 

It must be borne in mind that section 34 of the NHRA places the responsibility of granting permits squarely on the PHRAs. It reads, "No person may alter or demolish any structure or part of a structure which is older than 60 years without a permit issued by the relevant provincial heritage resources authority. " This suggests that that the PHRAs must be the most capacitated authorities because they carry a sole responsibility in the granting of permits that are necessary for development and conservation.

 

The challenge that the heritage sector has been facing is the non-existence of Provincial Heritage Resources Authorities in some of the provinces. Even where they exist they do not have capacity execute their functions. (See the attached draft document that seeks to provide solutions).

 

SAHRA is responsible for issuing for permits for heritage resources that fall within Grade 1. In case the applicant is not happy with SAHRA’s decision, he/she has a right of appeal to the Minister in terms of Section 49 of the NHRA and the Minister has the power in terms of the same section to set up a Tribunal to advise the Minister, before the final decision is made by the Minister.

 

The current Prestwich matter is a case in point in which the hearing is on 20 May 2004 in Cape Town. The Minister will require a separate full briefing from the Legal Advisor of the Department.

 

 

1.8.1 OUTSTANDING ISSUES

 

 

 

1.9. THE NATIONAL HERITAGE COUNCIL

 

 The National Heritage Council is established in terms of the National Heritage Council Act of 1999. The NHC is a coordinating body in the Heritage Sector - hence its composition. It is also a funding body like the NAC is in the Arts.

The NHC is in the process of developing its strategic vision in line with legislation. Last week, the NHC held a four-day strategic planning workshop in Cape Town. This will be submitted to the Department for consideration and the possible release of funds necessary to fulfill their mandate.

Since the NHC is a newly established institution, the Department has set up a task team to help the NHC in the early phases of its development.

 

 

2. LEGACY PROJECTS

 

2.1. INTRODUCTION/BACKGROUND

 

      1.    Pilot Legacy Projects: Shortly after the inauguration of the then President Mandela on 27 April 1994, the then Ministry of Arts, Culture, Science and Technology and The Presidency were inundated with requests from diverse sources for the establishment of monuments, museums, statues in memory and recognition of great leaders and historic events. Almost all the requests came from communities, leaders and individuals whose heritage was neglected during the previous political dispensation in the country. As a corollary to these requests, the then Ministry of Arts, Culture, Science and Technology identified nine pilot Legacy Projects for consideration and approval by Cabinet. These were submitted to Cabinet in 1998. They are:

 

                     Nelson Mandela Project (Umtata)

 

2.1.2. Status of the Nine Pilot Legacy Projects: June 1998 – June 2003: Amongst these projects, only four have been completed. These are the Women’s Monument , the Anglo-Boer South/African War, Constitution Hill and Dr (Chief) Albert Luthuli Projects. The Nelson Mandela, Samora Machel, and Ncome/Blood River Projects are half-complete and the Khoisan Projects is in the early phase of implementation.

 

      1. New Portfolio of Legacy Projects – July 2003: The new portfolio of Legacy Projects comprising of Mapungubwe, eMakhosini Valley, Liliesleaf, Steven Bantubonke Biko, Robert Smangaliso Sobukwe and Sarah Bartmann Projects is going to be submitted to Cabinet for consideration and approval. Department and yet there are challenges that include the following:

 

 

2.1.4. The above structural shortcomings have led to a need to review national policy and strategic framework regarding the implementation of Legacy Projects. This has called for the need to think about the possibility of un-encumbering some of these projects from the Department of Arts and Culture to other implementation agencies, Non-Governmental Organizations and Community Based Organizations for greater efficiency and speedy delivery. However, this requires a feasible and credible national policy and strategic framework to guide the implementation of these projects so that the Department can act on a management and monitoring capacity.

 

2.1.5. The Department has procured the services of Professionals that will develop new policy and strategic framework for the implementation of Legacy Projects.

 

2.2 OBJECTIVE

2.2.1 To Review the implementation frameworks of pre-1994 and post-1994 commemorative structures

2.2.2 To develop new policy and strategic framework in order to enhance efficiency, good quality and speed in the implementation of Legacy Projects.

2.2.3 To develop a monitoring framework for the DAC.

 

2.3. TASK DIRECTIVES

 

      1.   To conduct a survey of policy and strategic frameworks that informed the implementation of pre-1994 commemorative structures.
      2. To conduct a survey of the implementation agencies that played a leading role in the implementation of those commemorative structures.
      3. To determine the role played by the National Monuments Council, the previous Department of Education during the pre-1994 political dispensation (or the Ministry responsible for commemorative structures during that era), cultural foundations and other organs of the civil society.
      4. Based on obstacles impacting on speedy implementation identified, motivate for a new policy framework.
      5. Identify active Foundations, NGO’s, CBO’s working in the Heritage sector and other agencies with potential and interest in implementing new Legacy Projects
      6. To determine the status quo of the post 1994 commemorative structures as well as the philosophical foundation that informs the policy and strategic framework for their implementation.
      7. To determine the efficacy, efficiency and speed with which the Legacy Projects are implemented.
      8. To determine the impact of the objectives of the Legacy Projects as well as the Public perceptions of these projects.
      9. To recommend national policy and strategic framework for the implementation of Legacy Projects.

      1. To recommend clear monitoring mechanisms in the implementation of the Projects in line with national imperatives such as job creation, income generation.

      1. To determine the success of the institutions established through national legacy projects
      2. To recommend the most suitable corporate and human resource structure to ensure efficiency of implementation
      3. To develop key performance indicators within the monitoring framework

 

    1. PROJECTED OUTCOMES

 

      1. A review document of pre-and-post 1994 legacy project implementation strategies
      2. A blue print policy and strategic framework for the implementation of the National Framework.
      3. A blue print policy and strategic framework for monitoring and the evaluation of the implementation of Legacy Projects.

 

 

 

3. South African Geographical Names Division

 

 

The South African Geographical Names Council (SAGNC) was established through the South African Geographical Names Council Act No. 118 of 1998. The SAGNC is an advisory body that advises the Minister of Arts and Culture on the transformation and standadisation of the geographical names in South Africa.

 

Each country has the sovereign prerogative to standardize its geographical names, i.e. to decide what the name for each feature in that country should be, and how that name should be written. This is in pursuance of UN resolution 4 of the First UN Conference on the Standardisation of Geographical Names.

 

Consistent use of accurate geographical names is an essential element of effective communication worldwide and supports socio-economic development, conservation and national infrastructure. Geographical names can identify and reflect culture, heritage and landscape. Correct use of accurate geographical names can provide benefits to local, national and international communities engage in trade and commerce, population census and national statistics, property rights and cadastre, urban and regional planning, environmental management, sustainable development and conservation, natural disaster relief, security strategy and peacekeeping operations, search and rescue operations, map and atlas production, automatic navigation, tourism and communication.

 

The SAGNC has amongst other things advised the Minister on the proposed change of names of towns, mainly from Limpopo province. It has facilitated the establishment of nine provincial committees. The Department through the South African Geographical Names Unit/Secretariat has taken upon itself to drive capacity building and an awareness campaign in all nine provinces in order to build capacity for provinces to be able to enforce policies of the SAGNC at provincial level. Capacity building will focus on the use of the recently established geographical names database system and at the same time making an audit of name situation in the country. The process will take place for the duration of three months

 

The South African Geographical Names Council Act requires the Department of Arts and Culture to establish and maintain a research section and the necessary infrastructure, incorporating a computerised database, a library, reference material and document archives.

 

The new, authoritative database has a web-enable geo-reference viewer that provides the functionality to plot latitudes and longitudes on a map, and to view the places with the exact location.

 

The Department and the SAGNC published a second, revised edition of its Handbook on Geographical Names. It maintains a website on which lists of approved names are published, as well as information about the Council.

 

The cooperation of the National Language Services and Pan South African Language Board was obtained for the production of orthographies for geographical names in all official languages and other recognised languages, and this work has commenced.

 

Cooperation was obtained from the Department of Provincial and Local Government in the production of a database of the names of local authorities with information on their origin and meaning. The preparation of this database is in progress.

 

Cooperation was obtained from the Department of Environmental Affairs and Tourism to align the naming situation of Prince Edward Group of Islands with naming policies of the SAGNC.

4. LIVING HERITAGE

 

The work of the unit is concerned with formulating a strategy for preservation and promotion of Living Heritage (internationally referred to as intangible cultural heritage in terms of the UNESCO Convention on Safeguarding Intangible Cultural Heritage) for example, oral tradition, oral history, rituals, indigenous performance, music, indigenous knowledge systems and the holistic approach to life.

 

Amongst these elements of Living Heritage, The Department prioritized indigenous music. The panel was appointed to develop a strategy and plan for the collection, development, preservation, promotion and dissemination of indigenous music in March 2000. Consultative processes through Provincial seminars were held in April – October 2000, culminating in the national conference in October 2000 whose main purpose was to discuss and adopt the strategy. The strategy was forwarded to the Minister for approval in November 2000, detailing the possible implementation of two aspects of the strategy in 2001 - the establishment of National Performance troupe and training of collectors of indigenous music.

 

Whilst the collection of indigenous music was seen to be the responsibility of the Heritage Section in partnership with the National Archives, the responsibility to establish the National Dance Troupe was given to the Section in the Department that deals with the Performing Arts.

 

The Department is working with the three Historically Disadvantaged Universities, viz, Zululand, Venda and Fort Hare. These universities are working with NGOs and CBOs in collecting indigenous music, oral history etc. We are currently awaiting reports from these universities.

 

In 2003, South Africa participated in the drafting of the UNESCO Convention on Safeguarding Intangible Cultural Heritage. As member state, South Africa bears the responsibility of developing a policy and legislation in this regard. South Africa has the responsibility to develop the national inventory.

 

We intend to use the Heritage Month to launch the programmes that are designed achieve the development of policy, legislation and inventory.