Part 1: Outcomes, Priorities and Objectives
Overview
I am pleased to present the Ministry's Statement of Intent for the period 2006 to 2010.
The Ministry contributes to several long term government outcomes – to insight and enrichment, economic prosperity, a sense of place, and strong communities. The government's recent announcement that national identity is one of its three key themes for the next decade highlights the importance of our culture and heritage, and gives a further focus to the Ministry's work. Much of this work contributes to New Zealanders' sense of our distinctive cultural identity, and thereby helps foster a strengthened national identity.
New Zealand 's distinctive culture is maintained in large part by arts and creative activities, by sports and recreation, by languages, film and broadcasting, and by engagement with our history and our heritage.
The more than seven years I have spent in my job have coincided with a period of growing interest by New Zealanders in these aspects of our national life. The time when we accorded overseas cultural activities an automatic respect, while remaining suspicious of our own, were already well gone. But these early years of the 21st century are, I think, ones of particular cultural vibrancy and increasing maturity. I detect a rising tide of confidence in our culture and heritage, a pride in its Pacificness, in its unique blend of components – which include, of course, the indigenous Māori culture of this country.
In these exciting times, government's involvement in New Zealand's culture remains of crucial importance. Without such involvement, some aspects of our cultural life would simply not exist. The Ministry takes seriously its responsibility to advise government, and to support and execute its decisions.
This document provides an outline of the primary ways in which we will undertake these activities over the next five years. In doing so, we will need to work effectively with the many other agencies which also contribute to the achievement of government's culture and heritage outcomes.
As Chief Executive, I look to the future with enthusiasm, and with confidence in the ability of the Ministry to rise to the challenges we will meet over the next five years. I once again take the opportunity presented by the publication of this document to pay tribute to my staff, and to the expertise, commitment and flair they bring to their work.
Martin Matthews
Chief Executive
19 May 2005
Background
In these early years of the 21st century, New Zealanders
live in a diverse and sophisticated nation. We are loyal to
a sense of our own history, but increasingly willing to challenge
the conventions by which for many decades
we defined ourselves.
Cultural and heritage activities offer important ways of both expressing our national identity and promoting its further development. At the same time, they contribute to a number of other positive outcomes, including economic growth and stronger, more tolerant communities.
A history of support
For well over a hundred years, successive New Zealand governments – like most governments around the world – have recognised the value of culture and heritage for individuals, wider communities and the country as a whole. Over time, government support for culture and heritage activities has become more extensive.
The establishment of the Colonial Museum in 1865 was followed in the first half of the twentieth century by the bequeathing of the Alexander Turnbull Library to the state and the opening of the Dominion Art Gallery. These institutions provided places where valuable pieces of our history and culture could be cared for.
As the 20th century progressed, the government broadened its role in culture and heritage. It commissioned official histories, held literary competitions, formed the State Literary Fund, reformed the broadcasting service, founded a national orchestra and established agencies such as the National Film Unit, Historic Places Trust, Queen Elizabeth II Arts Council and Hillary Commission for Sport, Fitness and Leisure.
Such was the government's growing interest in the sector that in 1975 a ministerial portfolio for the arts was established. This remains today as the Arts, Culture and Heritage portfolio, with a Minister and two Associate Ministers. Broadcasting, again recognised as a crucial element in the nation's culture, is overseen by a separate Minister of Broadcasting. Similarly, government's interest in sport is looked after by the Minister for Sport and Recreation.
The creation of a separate Ministry in 1991 to work to the cultural ministers marked an important milestone in government's involvement with the sector.
The Ministry for Culture and Heritage
The Ministry for Culture and Heritage is, in 2006, an organisation of almost a hundred people. We serve the government of the day in implementing and overseeing its programme of support for culture (including broadcasting, history, the arts and sport) and heritage; and we advise the government on the development of that programme, including identifying new opportunities for culture and heritage activities to contribute to government's broader aims.
Neither Ministers nor the Ministry seek to predetermine the
nature of this country's cultural development, nor dictate
the cultural choices or preferences of its citizens. If our
culture and our sense of heritage are to be
meaningful to New Zealanders, they must represent an organic response to our
lives and times. A very large proportion of New Zealanders' engagement with
culture and heritage happens, in any event, beyond the reach of central government.
But government nevertheless recognises that many of the cultural and heritage activities enjoyed by New Zealanders are available only because of the direct or indirect provision of government resources.
The Ministry's growth in recent years reflects a range of new programmes that have attracted government support because ministers considered that they were the best way of serving the government's own objectives and, implicitly, the evolving cultural and heritage needs, interests and aspirations of New Zealanders. These programmes include Te Ara, the Encyclopedia of New Zealand; the Cultural Diplomacy International Programme; the war veterans' oral history series; and the cultural portal project. (An outline of the structure of the Ministry, and the specific roles of each unit, can be found on page 5.)
Over the next five years the Ministry will continue to support ministers' responses to the enormous range of opportunities and options presented by a dynamic sector. The expertise of the Ministry is a crucial support for ministers in the selection, implementation and monitoring of its culture and heritage interventions.
The Ministry and the sector
The Ministry is only one of many agencies through which government manages its involvement in the cultural and heritage sector. There exist also a number of other organisations – some of them Crown entities or other statutory bodies, others private organisations supplying services to the Crown – which operate in the sector by Crown mandate and/or with government support.
The range of culture and heritage organisations which government has established and/or funded, and with which the Ministry works, indicates the diversity of government's interests in an area which is considerably broader than 'the arts', the shorthand term by which it is often described.
Certainly, the arts, as part of our culture, are of fundamental
importance. But so too are broadcasting, sport, heritage, and
history. Each in its own way focuses on aspects of our understanding
of ourselves, our country, and our aspirations; and the means
by which we represent that understanding to each other. In
combination, these representations constitute our shared sense
of cultural identity, a key component in
our broader national identity.
Each culture and heritage organisation created or funded by government has an important part to play in ensuring the ongoing coherence and effectiveness of government's involvement in the sector. Government's significant investment in sector organisations' operations is based on an expectation that – whatever degree of independence they have with respect to undertaking their own activities – their strategic orientation is consistent with the government's own broad objectives; and that they are in partnership with the Crown towards the achievement of certain positive outcomes. The Ministry does not chart the particular course each of these agencies must follow, but it does work with sector organisations to help ensure that they are aware of and responsive to the expectations of government.
The environment in which we work
Government's selection of its preferred kinds of involvement in the sector, and the Ministry's provision of support to government, are affected by some key environmental factors.
Demand for culture and heritage activities
There is increasing demand for culture and heritage activities across all sectors of our society. A growing sense of confidence in New Zealand's cultural life can be expected to further increase the demand for cultural and heritage services – along with the costs attendant on the supply of these services.
Māori issues
Māori culture has a special place in our increasingly diverse society because it is the culture of New Zealand's indigenous people. It will continue to play an important role in all New Zealanders' sense of the distinctiveness of our country.
Collaboration and partnership
The higher priority given by ministers to culture and heritage activities over recent years has resulted in an increased sense of culture and heritage being a legitimate part of the business of government.
There is also increasing understanding that the effectiveness
of many government programmes, including culture and heritage
programmes, depends on partnerships among government and non-government
agencies (as well as with local or community organisations).
Further, there is a useful culture and heritage element in
many other areas of government action. The fourth state services
development goal – 'co-ordinated state agencies: ensure the
total contribution of government agencies is greater that the
sum of its parts' – is clearly relevant here.
The Ministers in the Arts, Culture and Heritage portfolio, and the Ministry, will continue to promote recognition of the importance and potential of arts, culture and heritage across the government sector.
A tradition of independence
As noted, many of the government's specific culture and heritage services and experiences are delivered through government-funded agencies operating outside central government, notwithstanding the role they play in the achievement of government's desired outcomes. There is a longstanding principle that certain cultural services should be delivered at arm's length from government, so that agencies can pursue their particular objectives and functions, and promote and maintain freedom of expression, without direct political intervention.
New technologies
Technological change provides new opportunities for the delivery of culture and heritage initiatives. The Ministry is currently undertaking a range of initiatives that utilise new technologies to deliver cultural information and experiences. These will support the state services development goal of networked state services. New technologies enable easier access for New Zealanders to overseas cultural products too; this brings advantages, but has the potential to overwhelm our engagement with our own culture and heritage.
Demographic and ethnic changes
Trends within New Zealand's population have an impact on our culture and heritage. Increasing cultural and ethnic diversity, especially in Auckland, the growing proportion of Pacific and Asian people, and an ageing population will all bring changes to New Zealand.
International recognition
New Zealand culture and heritage activities are more and
more part of the way we present ourselves to – and are perceived
by – the rest of the world. There is considerable scope for
building on the increasingly positive response to our cultural
profile as New Zealand develops other aspects
of its international relationships.
The Ministry and the sector
Outcomes the government seeks from its involvement in culture and heritage
Long-term outcomes
In supporting culture and heritage activities, government has sought to bring about certain positive outcomes. These outcomes have been articulated with varying degrees of explicitness by different administrations, but it is clear that their underlying ideas have informed government's involvement in culture and heritage over many years.
The outcomes may be described as follows:
Insight and enrichment
At its heart, culture has an intrinsic value. Cultural activities provide experiences that are satisfying and rewarding in themselves and that directly enhance our quality of life. They provide a means of self-expression which reflects the different strands of our communities and give us a way of understanding the experiences of others. Cultural activities offer insight and enrichment which can help us to question conventional ideas and to re-examine our social history.
Economic prosperity
The development of our creative talent and our cultural and
creative industries also plays an important part in enhancing
economic prosperity. Culture and heritage activities provide
more than just pleasure and enjoyment – they employ people,
generate income, add value, boost GDP and export earnings,
encourage tourism and suggest new approaches and solutions.
They are helping to transform the New Zealand economy to one
characterised
by skill and innovation, and by knowledge-based and value-added industries.
A sense of place
Our culture and heritage helps define New Zealand as a dynamic and creative nation with a unique place in the world. In times of globalisation we must be part of the international community, while maintaining a strong national identity. It is particularly important that we promote the value of our own culture and heritage, the things that make us different, in order to command a place on the world stage.
Strong communities
An informed understanding of our unique culture and heritage, of the diverse strands within our society and the way those strands interweave, helps build strong communities. When people are confident in their own sense of history and heritage, and respectful and tolerant of others', different communities can work effectively together towards the achievement of a cohesive society and a range of social goals.
The priorities of the government
The long-term outcomes outlined above provide the context for the government's particular priorities, as they relate to its involvement in culture and heritage. These priorities will have a clear impact on the mix of activities with which the government's will choose to involve itself.
Cabinet has agreed that the following themes constitute the government's priorities for the next decade:
- economic transformation;
- families – young and old; and
- national identity.
Culture and heritage activities have roles to play in all these areas. In particular, they have a central place in the achievement of a strong sense of national identity, encouraging as they do a key component of national identity: a sense of cultural identity.
A strong sense of national identity
In her Statement to Parliament on 14 February 2006, the Prime Minister said:
... there's much more New Zealanders take pride in about our country.
We celebrate our sporting and cultural successes, our creativity and unique heritage, our cosmopolitan lifestyles and great outdoors, and our ability to live largely at peace with each other in our multicultural society.
There is an evolving New Zealand way of doing things, and a stronger New Zealand identity is emerging. It's important to develop that distinctive New Zealand style, identity, and set of community values. As a government we will continue to prioritise policies which contribute to a strong sense of national identity.
Cabinet subsequently agreed that the national identity theme focus over the next decade on having all New Zealanders being able to:
... take pride in who and what we are, through our arts, culture, film, sports and music, our appreciation of our natural environment, our understanding of our history and our stance on international issues.
A strong sense of national identity is the platform on which much that makes a nation and individuals successful can be developed. Culture and heritage experiences contribute to a sense of identity directly, implicitly and symbolically.
Activities such as visiting Te Papa or viewing a New Zealand documentary, or material on nzhistory.net.nz or Te Ara, enable people to better understand aspects of our history. They provide direct routes to greater understanding of New Zealand's development as a distinctive nation.
Other activities convey ideas about 'New Zealandness' less explicitly, but nevertheless assert and reinforce a sense of the country we live in. New Zealand's film, television, dance, drama, music and literature, for example, are inevitably different to that produced in other countries (even when subject to overseas influences). That difference provides scope for celebrating the uniqueness of our own identity.
Symbols can highlight very powerfully key features in our understanding of our nation and its culture. They provide points of shared national connection. Examples include the Tomb of the Unknown Warrior and other memorials; Anzac Day; and the national flag and anthems.
The Ministry will continue to support the government's current involvement in culture and heritage towards the achievement of a strong sense of national identity, and will work as closely as possible with other agencies that also have a role to play in this area. In advising the government, the Ministry will look for opportunities for new kinds of involvement that will contribute further to the achievement of this outcome.
Ministry purpose and broad organisational outcomes
In an environment which is constantly changing, government policy must be responsive to remain effective. The government's desired outcomes will be achieved only if the interventions it supports are selected carefully and implemented well.
The Ministry plays a key role in supporting the government by seeking to ensure that those culture and heritage agencies, programmes, projects and services with which it is associated represent the 'right' interventions and provide value for money; and by implementing government's decisions as effectively as possible.
The Ministry's purpose can therefore be described as: ensuring effective government involvement in the culture and heritage sector, in support of two broad outcomes:
- New Zealanders enjoy widespread access to quality culture and heritage experiences; and
- Culture and heritage activities contribute to the achievement of other government outcomes.
OUTCOME 1: New Zealanders enjoy widespread access to quality culture and heritage experiences
The Ministry's advice to government is informed by its recognition that all New Zealanders must have opportunities to engage with quality culture and heritage activities. Access to certain experiences (attendance at a national museum and watching indigenous television, for example) has been given priority by government.
The Ministry also has a role in guiding other agencies to ensure that their programmes and services are of high quality and widely accessible.
Further, although government has tended to favour an 'arm's length' approach for many of the ways it involves itself in culture and heritage, there are certain activities that for various reasons it considers are most appropriately made available directly by central government.
These reasons include the need for such activities to be publicly identified as matters of state (for instance, the creation of the Tomb of the Unknown Warrior); the desirability of their having the authority conferred by state production (as with the development of Te Ara); and the need for government to take a leadership role with respect to sector co-ordination (the creation of the cultural portal, for example).
OUTCOME 2: Culture and heritage activities contribute to the achievement of other government outcomes
The Ministry, through its involvement in the wider system of government, has an important role in helping ensure that a culture and heritage perspective is reflected in other areas of government activity to support the achievement of other desired outcomes. Economic development and the transformation of the economy, social development, trade, tourism, foreign affairs and education are just a few areas in which a strong sense of cultural identity is critical to the success of government's involvement.
The perspective brought by the Ministry strengthens the effectiveness
of activities in these areas, and ensures
that they are aligned with government's culture and heritage aspirations.
The Ministry's intermediate outcomes
In articulating the key intermediate outcomes that support the broader, long-term organisational outcomes, the Ministry has taken into account the government's own desired outcomes and particular priority areas, the roles and functions of the Ministry, and the broader environment in which we operate. The intermediate outcomes are informed by indications from government to departments about its preferred areas of future engagement; and by recent ministerial and Cabinet decisions, particularly as these relate to the national identity theme and its sub-themes:
- who we are;
- what we do;
- where we live; and
- how we are seen by the world.
Together, these decisions and directions of government define the location of its 'vital results' expectations.
The intermediate outcomes for 2006–2010 can be described as follows:
Digital delivery of cultural content is enhanced:
The enormous advances in digital technology over recent years provide opportunities for cultural content to be made available more easily and to more people. These opportunities have been recognised by government in such measures as the 2005 Digital Strategy. The Ministry has a clear role in ensuring that digital access to cultural material is enhanced and that, where necessary, cultural content is developed for this purpose.
New symbols of nationhood are developed:
In a time of considerable cultural diversity, symbols of nationhood play an important role as formal markers of our sense of heritage and identity, of who we are. As the response to the return of New Zealand's Unknown Warrior demonstrated, there is a public appetite for the creation of such symbols. In advising government, and in implementing its decisions, the Ministry works to ensure that the socially uniting potential of symbols of nationhood is realised.
New Zealand is promoted internationally through our culture and heritage:
New Zealand 's 'clean, green' image is no longer a sufficient or reliable platform for our engagement in world affairs. The potential of our culture and heritage to support international initiatives, on the other hand, has not yet been fully realised. Culture and heritage activities enhance how we are seen by the world. They assist in the recognition of New Zealand as a distinctive, creative and savvy nation; this has clear benefits in such fields as diplomacy, trade and tourism.
Performance of others in their support of culture and heritage outcomes is enhanced:
A large number of organisations and agencies have a part to play in the achievement of government's culture and heritage outcomes. The Ministry works with many of these agencies to ensure that, individually and jointly, they are as effective as possible in their work.
Outcomes the government seek from its involvement in culture and heritage
Intermediate Outcome One: Digital Delivery of Cultural Content is Enhanced
Key Priority 1: Access to accurate and authoritative information about New Zealand, our history and our society
In a period of rising demand for culture and heritage experiences, and of rapid technological change, the internet plays an increasingly important role in the Ministry's dissemination of culture and heritage information. Providing material on websites is the most cost-effective way to support government's determination that New Zealanders need to have access to quality information about their country and their identity (who we are, what we do, where we live, and how we are seen by the world).
The Ministry routinely, therefore, augments book publication
with related website exhibitions on nzhistory.net.nz;
as well as creating purpose-built websites for major projects such as Te Ara.
Mechanism 1: Te Ara, the Encyclopedia of New Zealand
The broad accessibility of Te Ara as compared with the alternative option of a hard-copy encyclopedia is demonstrated by the fact that its 1966 (hard-copy) predecessor sold 30,000 copies in total. Even allowing for the fact that many of those copies would have been held in libraries, Te Ara's visit total to date of almost a million – more than 30 times the sales figure – signals a significant increase in readership.
Te Ara has ongoing costs of approximately $1.5 million per annum, and a projected visit total of 1.5 million in 2006/07.
Key Objectives for 2006/07
Objective 1: Complete the third broad Te Ara theme ('The
Bush') and at least four regional sections of the
'Places' theme.
Objective 2: Increase visitor numbers and maintain visitor satisfaction.
Measuring progress and achievement 2006–2010
Planning procedures ensure that at all times we are aware of production progress compared with forecast achievement.
We will collect data about Te Ara total visitor numbers, and pages visited.
We will maintain our online survey, collecting qualitative data about the visitor experience provided by Te Ara.
Mechanism 2: nzhistory.net.nz
This recently revamped website includes material about key aspects of New Zealand's history. The new Classroom and Calendar features seek to present historical information in lively and engaging ways, and to give a wider audience a greater understanding of who we are, and what we do.
The website has proved to be a cost-effective way of making historical information available. Over the year, it receives an average of at least 100,000 visits per month, and is maintained at a staffing cost of around 3.5 FTEs. Feedback is generally very positive.
Key Objectives for 2006/07
Objective 1: Develop new features to augment the range of material available on the site.
Objective 2: Incorporate the former SSC Treaty of Waitangi site into nzhistory.net.nz.
Objective 3: Enhance visitor satisfaction through the greater use of interactive content.
Objective 4: Increase visitor numbers.
Measuring progress and achievement 2006–2010
Planning procedures ensure that at all times we are aware of production progress compared with forecast achievement. Where possible new features are timed to coincide with relevant anniversaries.
We will collect data about visitor numbers and pages visited.
We will monitor feedback received through email and the site's discussion forum, and from recipients of the site's regular newsletter.
We will maintain liaison with professional groups (particularly secondary school history teachers) to gauge their use of nzhistory.net.nz and to inform further development.
Key Priority 2: A co-ordinated web presence for government cultural agencies, government-funded cultural organisations and private-sector and community-based cultural entities and enterprises
Currently the web presence of New Zealand's cultural sector is fragmented. Valuable digital cultural content can be accessed only if people know where to look across a range of unconnected websites.
The Ministry's 2003 research report, A Measure of Culture, showed that consumers had difficulty finding information about cultural activities, or did not have access to activities because they were not available in their region. Research also indicates that the profile of New Zealand culture and its products is still low overseas, yet authentic cultural experiences are what the 'Interactive Traveller' – Tourism New Zealand's target market – is looking for.
Mechanism 1: Development of a cultural portal for New Zealand
The cultural portal will address these gaps by making valuable cultural information and services quickly accessible to New Zealand and overseas audiences and consumers. It is apart of the Digital Strategy announced in May 2005, as a core element of the Growth and Innovation Framework. Government has agreed to provide $3.6 million (GST exclusive) over four years to develop the portal.
The portal will offer cultural enterprises greater capacity to move more of their business into the web environment, including enhanced access to online booking facilities, and to target audiences and consumers in local and global markets more effectively.
Key Objectives for 2006/07
Objective 1: Launch a cultural web portal as the foundation for a common access point to arts, culture and heritage enterprises and information.
Objective 2: Provide a cultural activities and events website within the cultural portal, aimed at increasing domestic and international audiences for cultural goods and services, cultural tourism events, facilities and destinations in New Zealand.
Objective 3: Extend content and functionality to provide easy access to information, services, products and activities within the sector.
Measuring progress and achievement 2006–2010
We will measure the increase in numbers of cultural sector organisations included on the portal website, to ensure the effectiveness of the portal in the sector.
We will measure the increase in numbers of national, regional and international cultural activities and events listed on the website.
We will collect data about unique portal visitors, including numbers and pages visited.
We will collect data about visitor traffic directed from the cultural portal to other websites.
We will monitor user and stakeholder satisfaction over time.
Key Priority 3: The effective use of digital technologies to support public broadcasting objectives in television broadcasting
The broadcast media have an unparalleled influence on the development and presentation of New Zealand's culture and national identity. It is vital therefore that New Zealand is well placed to meet the opportunities and challenges presented by digital technology in broadcasting.
Digital technology is creating challenges for free-to-air broadcasters, in the form of competitive pressures from multi-channel pay services. At the same time, the new technology brings opportunities for better delivery of public broadcasting, with options such as multiple channels offering access to a more diverse range of content, and transmission of programmes for minority audiences at more convenient times, interactivity allowing viewers to access more in-depth material behind programmes, improved picture and sound quality, and content innovation being encouraged.
Mechanism 1: The launch of a digital television service offering enhanced public broadcasting and local content to all New Zealanders
Free-to-air television, and especially TVNZ, is the primary vehicle through which public broadcasting and local content are delivered, with around $85 million allocated annually for this purpose through NZ On Air and directly to TVNZ.
Many OECD countries have taken steps to support the launch of free-to-air digital television services, and to move towards switching off analogue transmission. Facilitating such a transition in New Zealand will ensure the delivery of public broadcasting and local content through free-to-air digital services with optimal audience reach and impact.
Key Objectives for 2006/07
Objective 1: Secure free-to-air broadcaster commitment to a digital television platform, using hybrid terrestrial and satellite delivery.
Objective 2: Encourage the development of new digital services
that effectively deliver public broadcasting
and include content reflecting a New Zealand identity and perspective.
Measuring Progress and Achievement 2006–2010
We will monitor progress with the roll-out of a free-to-air digital platform, and ensure minimum levels of coverage are met.
We will ensure data is collected about the range, diversity and volume of digital content produced with support from NZ On Air or TVNZ.
Intermediate Outcome Two: new symbols of nationhood are developed
Key Priority 1: Completion of new memorial projects
In recent years there has been a resurgence of interest in family and New Zealand history, and in New Zealand's involvement in various conflicts during the 20th century. There is increasing recognition that significant aspects of our heritage and identity depend on the sacrifice made by others during times of war. This is illustrated by the growing numbers of young people who attend Anzac Day dawn services in New Zealand, and particularly those who go to the great lengths involved in getting to Gallipoli for Anzac Day.
This marks a shift from simply mourning those who have died to examining more complex questions about New Zealand's national identity and its attendant symbols and rituals. It also marks a shift to recognising all who have served, and are still serving, the national interest – from the original Anzacs through to more recent international peacekeeping efforts.
On a local level this growing interest has sparked the restoration of war memorials in cities and towns around New Zealand, and the completion of the Tomb of the Unknown Warrior in 2004. On an international level, it facilitated the proposal to build a New Zealand Memorial in Canberra and a dedicated commemorative site at Gallipoli.
A programme of memorial development provides a cost-effective way of providing a focus for this aspect of our heritage. While such developments can be costly in dollar terms, their impact, both nationally and internationally, is significant. Memorials provide a tangible and immediate focal point for a sense of national identity – providing local, national and international sites for commemoration and remembrance of those who served in time of war, and for the recognition of the relationships New Zealand has forged with other countries through a shared military heritage.
Mechanism 1: New Zealand Memorial in London
In London there are some important memorials to Commonwealth countries, including an Australian war memorial, dedicated in 2003, which now forms the focus for the dawn service on Anzac Day. New Zealand will be one of the last of the major Commonwealth countries to erect a memorial in London. A design for the memorial has been selected and the budget for design and construction set at $3 million.
Key Objectives for 2006/07
Objective 1: Complete the New Zealand memorial in London
within budget and in time for a dedication on
11 November 2006.
Measuring progress and achievement 2006–2010
The deadline for the completion of the memorial is fixed and must be met by the Ministry.
Mechanism 2: National Memorial Park in Wellington
In 2005 the Ministry purchased the land across the road from the National War Memorial in order to create a memorial park. This will improve the setting of the memorial and substantially enhance the heritage and community value of the entire area.
Key Objectives for 2006/07
Objective 1: Advance the establishment of the National Memorial Park, including considering the feasibility of putting Buckle Street below ground in order to create a direct link between the National War Memorial and the National Memorial Park.
Measuring progress and achievement 2006–2010
Progress towards completion of the Memorial Park will be determined largely by the speed with which the project can gain resource consent. Ideally, consent will be gained and construction commenced either on 'trenching' Buckle Street or on the park itself.
Intermediate Outcome Three: New Zealand is promoted internationally through our culture and heritage
Key Priority 1: New Zealand cultural activities are taken off-shore to advance the country's trade, economic, tourism and diplomatic interests
Exposure of New Zealand cultural activities off-shore enhances how we are seen by the world. It helps build New Zealand's global profile, and advances our international trade, economic, tourism and diplomatic interests. In most parts of the world, cultural diplomacy is a recognised means of building closer ties between countries.
Mechanism 1: Implementation of the Cultural Diplomacy International Programme
The Cultural Diplomacy International Programme helps define New Zealand as a dynamic and creative nation, strongly rooted in its diverse heritage and with a unique place in the world. It contributes directly to the 'economic transformation' goal by enhancing understanding of and engagement with New Zealand among government and business leaders in target regions. The programme works on a basis of long-term outcomes and with an annual budget of $2.089 million (GST exclusive) is a cost-effective means of advancing whole-of-government policy priorities using collaborative planning.
Joint government/private-sector funding arrangements are used wherever possible, particularly in relation to the range of ancillary activities developed around each cultural event. These leveraging activities promote New Zealand's trade, business, cultural, tourism, immigration, science, education and diplomatic interests.
Key Objectives for 2006/07
Objective 1: Broadcast in China of five documentaries about New Zealand's natural history; its people; the China–New Zealand link; New Zealand innovation; and New Zealand cinema.
Objective 2: An exhibition from New Zealand curated and managed by Te Papa will travel to four cities in China.
Measuring progress and achievement 2006–2010
Progress will be measured against agreed milestones in the contracts relating to each funded activity. Each contract includes an evaluation requirement which provides data and information on:
- audience or visitor numbers;
- feedback from diplomatic posts, Tourism New Zealand and New Zealand Trade and Enterprise, including examples of strategic visits and trade, tourism, and other opportunities arising;
- the extent of media coverage and media signals;
- feedback from audiences/visitors; and
- assessment of costs against audience/visitor numbers.
Intermediate Outcome Four: performance of others in their support of culture and heritage outcomes is enhanced
Key Priority 1: Key culture and heritage legislation is reviewed
Legislation makes a significant contribution to the framework established to support culture and heritage outcomes and contribute to key government priorities. Legislation creates the conditions which provide for effective agencies and a flourishing cultural sector.
A continuous programme of review considers whether legislative interventions remain relevant, appropriate to need, cost-effective and up to date; and whether they take into account contemporary technological, societal and international changes.
Mechanism 1: Review of the Historic Places Act, Protected Objects Act, Radio New Zealand Act, and other legislation as agreed with government; and legislative amendments made through the Parliamentary process
The Historic Places Amendment Bill will enhance the effectiveness
of the Historic Places Trust through strengthened governance
arrangements, improved heritage registration procedures and
clarification of unclear legislative provisions.
The Trust's Elections Regulations will also be considered and amended, as necessary,
as part of the review.
The Protected Objects Amendment Bill will enable New Zealand to secure the return of stolen or illegally exported cultural heritage objects through international conventions, better control the export of important cultural objects, and provide an improved process for allocating the ownership of newly found Māori cultural objects. It will also ensure that penalties provide an effective deterrent against breaching the Act's provisions.
The review of the Radio New Zealand Act includes the five-yearly review of the Radio New Zealand Charter required by current legislation to clarify its intent and ensure it is able to meet current and future requirements.
Key objectives for 2006/07
Objective 1: Enactment and implementation of the Historic Places Amendment Bill, priority 2 on the 2006 Legislation Programme (must be passed in the year).
Objective 2: Enactment and implementation of the Protected Objects Amendment Bill, priority 3 on the 2006 Legislation Programme (to be passed if possible in the year).
Objective 3: Review of Radio New Zealand Act, priority 4 on the 2006 Legislation Programme (to be referred to a select committee in the year).
Measuring progress and achievement 2006–2010
Support progress of Bills through the Parliamentary process, subject to government's legislative priorities.
Amendments to the Historic Places Trust Elections Regulations will be approved within six months of the passage of the Historic Places Amendment Bill.
Operational procedures to give effect to the provisions of the Protected Objects Amendment Bill will be in place when the legislation comes into force.
Processes to enable New Zealand to accede to the UNESCO Convention on the Means of Prohibiting and Preventing the Illicit Import, Export and Transfer of Ownership of Cultural Property (1970) and the UNIDROIT Convention on Stolen or Illegally Exported Cultural Objects (1995) will be initiated as soon as possible after the Protected Objects Amendment Bill comes into force.
Key Priority 2: Central government agencies' understanding of and support for culture and heritage outcomes (and of the role of culture and heritage in broader government outcomes) is enhanced
The effectiveness of many of government's culture and heritage programmes and policies depends on partnerships with a number of other central government agencies. In addition, culture and heritage can play a key role in the promotion and support of broader government objectives – for example, those relating to trade and diplomacy, and to community development and social welfare.
The Ministry is involved in an increasing number of cross-government organisational groupings which contribute to enhanced understanding of and support by the wider government sector for culture and heritage objectives. However, the Ministry considers that there is still scope for more firmly embedding recognition of the potential of cultural and heritage activity throughout government.
Mechanism 1: Development and implementation of a communications strategy and supporting communications plans with a focus on actively promoting understanding of and support for the role of culture and heritage by central government agencies
Implementation of a suite of strategic communications plans will ensure a co-ordinated and strategic approach to the communications that the Ministry has with other central government agencies. It will ensure that a communications perspective informs work across the Ministry and that the communications discipline is used as an effective tool to support the Ministry's outcomes.
The communications plans will be developed and implemented in-house using existing staff resources and will not require any additional resources.
Key Objectives for 2006/07
Objective 1: Key priorities from the Ministry's strategic communications plans are implemented in support of enhancing central government agencies' understanding of and support for the role of culture and heritage.
Key Priority 3: Performance of funded agencies is enhanced
The government owns and funds a number of Crown entities and other organisations operating at 'arm's length' to deliver cultural goods and help achieve cultural outcomes. This model places a strong reliance on good governance being exercised by the boards of these organisations, and on effective management and delivery. In addition, the mix of agencies directly supported through the Ministry includes a number of small, new, or distant agencies, and these factors can increase the risk of delivery failure. The Ministry is responding to this environment by developing and maintaining programmes to enhance governance performance, and identify and address operational capability issues.
Measuring progress and achievement 2006–2010
A series of key stakeholder interviews with central government agencies will be undertaken.
The final communications strategy will include a series of specific measurement goals, covering the outputs, impacts and outcomes of the supporting communications plans.
Mechanism 1: Enhancing governance
Many generic resources are available to support board members. However, our experience is that boards give more attention to customised material focused on the specific issues they are facing. Accordingly, the Ministry provides a tailored programme of support and assistance for the MCH 'family of boards' to ensure that they are able to practise the best possible governance and, in particular, that the exercise of their roles meets the often unique requirements of the Crown sector. For example, the work of these agencies is often carried out under a spotlight, and board members need to be very aware of their responsibilities as stewards of the public interest.
Working in this way enables our limited resources – approximately one FTE with a supporting budget of approximately $15,000 – to be deployed to best effect.
Key Objectives for 2006/07
Objective: Maintain a 'best practice' Crown governance programme. This will include providing:
- Workshops and other discussion opportunities for board chairs and members;
- Induction programmes for the new members appointed in 2006/07;
- Regular updates for board members, including quarterly editions of a governance e-newsletter and maintenance of relevant content on the Exchange shared workspace (intranet available to all board members); and
- Compilation over the year of a regularly updated governance e-manual.
Measuring progress and achievement 2006–2010
The impact of our work will be assessed by reference to informants in at least three agencies. This research will be undertaken by an independent person.
Mechanism 2: Improving operational capability
Agencies with recurring capability concerns at the operational level are more likely to have performance issues. After reviewing the capability improvement work of other public sector monitoring bodies, the Ministry concluded that there would be value in establishing an 'Agency Assistance Programme' for the organisations receiving direct Vote funding. The programme will demonstrate value for money by enhancing agency performance through the adoption of a co-ordinated approach to identifying, prioritising, and treating agency capability concerns.
Medium-sized and/or new agencies will be targeted, as these are likely to gain the greatest benefits from this programme due to their existing level of resources and stage of development.
Key Objectives for 2006/07
Objective 1: Develop, pilot and complete a robust 'Capability Assessment Tool' and 'Capability Improvement Process' for our medium-sized and/or new agencies.
Objective 2: Run workshops and seminars, and support additional professional
advice and/or coaching to address identified operational capability issues.
Measuring progress and achievement 2006–2010
The impact of these initiatives will be ascertained from an independent panel charged with assessing the robustness of the Capability Assessment Tool, and feedback from participating agencies.
Feedback on the value and benefit of this work will be sought from participating agencies.
Assessing cost-effectiveness
The Ministry is required to outline the main measures and standards that it intends using to assess and report on the cost-effectiveness of the interventions that it delivers and administers.
In administering Crown funding of some $300 million per annum to deliver services in support of government outcomes, the Ministry maintains a rigorous performance monitoring programme. Agencies meanwhile undertake their own planning and reporting under their legislative requirements. The Ministry's key monitoring work for funded agencies is set out in this document under 'Key Priority 3' within 'Intermediate Outcome Four – Performance of Others in their Support of Culture and Heritage Outcomes is Enhanced'. It includes a programme of ongoing review (Mechanism 2 refers) of the capability of agencies in receipt of Vote funding, including their ability to deliver value for money in their programmes. Two agencies are selected each year for such analysis, which among other things assures the government that the most cost-effective interventions are being pursued.
The Vote funding for which the Ministry is directly responsible is approximately $12 million per annum over the next five years. This expenditure is being incurred on developing policy, (as outlined on page 35), monitoring the performance of others, servicing the other portfolio needs of Ministers, and in the delivery of specific services and programmes. The policy group advises the government on arts, culture, heritage and broadcasting, and its work includes developing policy proposals, researching international practice, advising on options and helping with legislation. Ministers consistently rate highly the policy advice supplied by the Ministry, which is provided at a very competitive rate (as annual comparisons with other departments show). Similarly, the Ministerial servicing function of the Ministry continues to be well regarded by Ministers, and documents are efficiently produced.
Some significant programmes and services have been developed and approved within the past three years, with government deciding in each case that these are the most appropriate and cost-effective options available to achieve the outcomes sought. Examples of these are the Cultural Diplomacy International Programme, Te Ara and the cultural portal project. There has been a shift in the Ministry's focus in recent years towards digital publication. This reflects a recognition that the internet provides extremely cost-effective mechanisms for making cultural material available to a very wide audience.
The development of appropriate and meaningful measures of the cost-effectiveness of the Ministry's interventions will be an evolutionary process over the life of this current Statement of Intent.
Risk management
Risk management is the application of policies, procedures and practices to identify potential risks and ensure controls are implemented to prevent or mitigate their impact. The Ministry's risk exposure is both internal and external, and involves a combination of policy, operational and strategic elements.
External risks that might impact on the achievement of the Ministry's outcomes are reflected above under the heading, 'The environment in which we work'. Internal risks that could affect the Ministry's ability to achieve its outcomes are essentially either capability related or performance related.
Capability related risks of current relevance to the Ministry have been considered and are being addressed by pursuing objectives outlined in the 'Capability objectives to support the achievement of outcomes' section of this document.
The performance related risks of greatest consequence to the Ministry are:
- failure to maintain the quality of our policy advice, monitoring and other services to Ministers;
- failure of delivered programmes to meet their objectives;
- failure to understand or meet the requirements of users of our services; and
- failure to maintain and develop effective networks and robust processes for consultation with stakeholders.
The current strategies being used to manage these areas of risk will be reviewed during the coming year and enhanced or amended as necessary.
Capability objectives to support the achievement of outcomes
The Ministry's capability is its ability to access the appropriate combination of resources to achieve its outcomes efficiently and effectively. The core components of the Ministry's overall capability are its people, its information and knowledge, and its systems, support and communications processes.
The Ministry can legitimately regard itself as a successful organisation and a consistent high performer. Feedback from stakeholders, central agencies, the Audit Office and Ministers has been positive to date. Our aim is to maintain or enhance this by pursuing the following objectives.
Maintain a comprehensive human resources strategy that meets the Ministry's needs
Attracting and retaining experienced and talented staff is critical to the Ministry's ability to achieve its key outcomes, and contribute to the state sector development goals of being an employer of choice and of developing excellent state servants. We have a very positive organisational culture and a staff that is committed to the work of the Ministry. The external factors impacting on or influencing the work of the Ministry are changing. It is therefore important that the Ministry has a focused and responsive human resource strategy and continues to develop its culture of valuing its staff.
Key human resources policies and systems will continue to provide a solid platform from which we can advance our human resources strategy and maintain our competitive edge. Over the next five years we will continue to:
- review our human resources policies, practices and outcomes to ensure they continue to be fair and equitable, and meet the needs of the Ministry and the broader state services now and into the future; and
- utilise our integrated payroll and human resources information system to monitor our staff capability and to assist in determining our key areas of focus for human resources over the medium term.
In 2006/07 particular emphasis will be given to:
- our inaugural pay and employment equity review, which will be conducted in partnership with the Public Service Association. The aim of this review is to assess our success in ensuring gender equity both in terms of pay equity and of employment equity in the broader sense. During this review we will identify any significant areas of difference that are attributable to gender, prioritise areas that need to be responded to, and determine the appropriate response;
- reviewing our work/life balance and wellness policies following the consultation undertaken in 2005/06; and
- reviewing our performance management systems. The aim of this review is to provide a more consistent approach within the Ministry, enhance the quality and regularity of feedback for staff, encourage professional development opportunities, and identify ways in which we can celebrate success within the Ministry.
Develop the Ministry's knowledge and information management
Access to high-quality information, and the ability to use it effectively, remain key underpinnings of the Ministry's work. Increasingly, the success of the Ministry's work also relies on the effective dissemination of information via the internet.
Enhancing the use of internal expertise and resources
Staff have access to strong library and research resources to support them in their work; and we recognise the importance of an information-sharing culture. The Ministry has also established a knowledge management strategy, which was informed by internal surveys undertaken in 2004.
Over the next five years we will:
- continue enhancing our knowledge management to ensure that information resources support the achievement of Ministry outcomes.
- In 2006/07 particular emphasis will be given to:
- human resources initiatives that explore improved ways of utilising expertise within the organisation;
- mechanisms for information sharing, such as the internal broadcasting group, which brings together Ministry staff involved in providing support to the Minister of Broadcasting; and
- developing and implementing a database of images and
related resources that will be accessible across
the Ministry.
IT development
The Ministry's internal dependence on the effective use of knowledge and information means that its IT systems must be robust. The Ministry is committed to ensuring that this continues to be the case, and to responding to cross-departmental requirements led by the State Services Commission.
Over recent years, the Ministry has also taken on a significant role in the creation of digital content for delivery to internet users throughout New Zealand and across the world. Examples include Te Ara, the Encyclopedia of New Zealand; and nzhistory.net.nz. This role is driven in part by the natural development of the Ministry's own functions, and in part by government-wide initiatives such as the Digital Strategy.
In response to these drivers, the organisation has developed
an 'IT Roadmap' to guide this aspect of its development.
Over the next five years, we will:
- refine and implement the IT Roadmap to ensure that the organisation is well placed to support the needs of internal users and external consumers.
- In 2006/07 particular emphasis will be placed on:
- developing a formal web strategy to guide website development and support decisions; and
- considering issues of staffing structure, infrastructure
and capacity in relation to Ministry websites.
Implement and maintain a robust planning and reporting framework
In the development of this year's Statement of Intent considerable emphasis has been given to identifying how we will measure our achievements and progress in managing toward outcomes. It is essential that our internal business and resource planning systems and processes support us in this endeavour.
Over the next five years we will:
- progressively develop and implement a system for business and resource planning and reporting that supports all staff in their work, and supports high-quality external reporting.
In 2006/07 particular emphasis will be given to:
- enhancing resource planning in key areas of the Ministry.
Enhance strategic policy capacity and research
The Ministry's coverage means that it has a broad view of the government's culture and heritage interests. These can be expected to change over time as opportunities and expectations evolve. It is desirable that the Ministry, like other policy Ministries, conducts research and considers issues to ensure that the government's policy remains effective. The Ministry currently has limited capacity to do such work.
Over the next five years we will seek to:
- enhance our capacity to conduct research and provide strategic policy advice to government.
In 2006/07 we will:
- clarify future research priorities for culture and heritage; and
- explore ways to promote strategic policy thinking with the capacity we currently have.
Enhance our strategic communications capacity
The culture and heritage sector is diverse and has many players. The Ministry can only be effective if we work with and through other organisations.
Our responsibility for key delivery agencies gives us secure connections within the sector, but we need to build strong relationships with a wide range of stakeholders to ensure that their perspectives and interests are reflected in our work.
Over the next five years we intend to:
- improve connections to and from stakeholders.
In 2006/07 we will:
- focus on building a better understanding of culture and heritage in central government agencies; and
- review methods for communicating with key stakeholders to ensure they are highly effective.