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DIRECTORATE GENERAL FOR INTERNAL POLICIES

POLICY DEPARTMENT B: STRUCTURAL AND COHESION POLICIES

CULTURE AND EDUCATION

EUROPEAN CAPITALS OF CULTURE:

SUCCESS STRATEGIES AND

LONG-TERM EFFECTS

STUDY This document was requested by the European Parliament's Committee on Culture and

Education.

AUTHORS

Beatriz Garcia, Tamsin Cox

COLLABORATORS

Matti Allam, Pete Campbell, Giannalia Cogliandro, Stephen Crone, Floris Langen, Dave

RESPONSIBLE ADMINISTRATOR

Markus J. Prutsch

Policy Department B: Structural and Cohesion Policies

European Parliament

E-mail: poldep-cohesion@europarl.europa.eu

EDITORIAL ASSISTANCE

LINGUISTIC VERSIONS

Original: EN

Translation: DE, FR

ABOUT THE EDITOR

To contact the Policy Department or to subscribe to its monthly newsletter please write to: poldep-cohesion@europarl.europa.eu

Manuscript completed in November 2013

@ European Union, 2013

This document is available on the Internet at:

http://www.europarl.europa.eu/studies

DISCLAIMER

The opinions expressed in this document are the sole responsibility of the author and do not necessarily represent the official position of the European Parliament. Reproduction and translation for non-commercial purposes are authorized, provided the source is acknowledged and the publisher is given prior notice and sent a copy.

DIRECTORATE GENERAL FOR INTERNAL POLICIES

POLICY DEPARTMENT B: STRUCTURAL AND COHESION POLICIES

CULTURE AND EDUCATION

EUROPEAN CAPITALS OF CULTURE:

SUCCESS STRATEGIES AND

LONG-TERM EFFECTS

STUDY

Abstract

The European City/Capital of Culture Programme was launched in 1985 and the ECoC title has been awarded to nearly 60 cities in 30 countries. The Programme has become a key platform for city positioning and a catalyst for economic and cultural regeneration. Immediate cultural, social and economic impacts are common and the capacity to secure long-term effects, though harder to evidence, has grown in key areas such as urban image change and tourism development. The latter is evidence of the stronger commitment towards sustainable legacy planning and ever more defined and locally sensitive vision statements. This report documents common approaches and success strategies, highlights the strongest claims of long-term effect and analyses potential. Key recommendations are the establishment of a standardised evaluation framework, greater emphasis on comparative research and the creation of a formal knowledge transfer programme so that future hosts can better benefit from the wealth of experience developed in the last three decades.

IP/B/CULT/IC/2012-082 November 2013

PE 513.985 EN

European Capitals of Culture: Success Strategies and Long-Term Effects 3

CONTENTS

LIST OF ABBREVIATIONS 5

LIST OF TABLES AND CASE STUDY BOXES 6

LIST OF FIGURES 7

APPENDICES 8

EXECUTIVE SUMMARY 9

1. INTRODUCTION 19

1.1. Key objectives and research questions 20

1.2. Methodological approach 21

1.3. Structure of the report 35

1.4. Conventions 36

2. HISTORY AND DEVELOPMENT 37

2.1. Introduction 37

2.2. Emergence of the European Capital of Culture initiative 37

2.3. Development of the Programme 38

3. BIDDING APPROACHES 53

3.1. Introduction 54

3.2. Common strengths and weaknesses of successful bids 54

3.3. Vision, aims and objectives 58

3.4. Stakeholder engagement 62

4. DELIVERY APPROACHES AND SUCCESS STRATEGIES 65

4.1. Introduction 66

4.2. Vision 68

4.3. Programming processes and choices 70

4.4. Programme size and scale 77

4.5. Physical developments 81

4.6. Communicating the ECoC 83

4.7. Audiences, participants and volunteers 91

4.8. Governance 96

4.9. Financing 101

4.10. Planning for legacy 111

5. SHORT- AND LONG-TERM EFFECTS 113

5.1. Introduction 114

5.2. Cultural and image impacts 115

5.3. Economic and physical impacts 131

5.4. Social impacts 144

5.5. Political and policy impacts 152

Policy Department B: Structural and Cohesion Policies 4

6. CHALLENGES AND AREAS OF OPPORTUNITY 159

6.1. Introduction 160

6.2. Common challenges 160

6.3. Two long-term challenges and areas of opportunity 178

7. CONCLUSIONS AND RECOMMENDATIONS 195

7.1. Conclusions 195

7.2. Recommendations 197

BIBLIOGRAPHIC REFERENCES 209

European Capitals of Culture: Success Strategies and Long-Term Effects 5

LIST OF ABBREVIATIONS

EC European Community

ECoC European City/Capital of Culture

EP EU

European Parliament

European Union

GR Greater Region

Policy Department B: Structural and Cohesion Policies 6

LIST OF TABLES AND CASE STUDY BOXES

TABLE 1

Impact areas and thematic areas 22

TABLE 2

Report structure 35

TABLE 3

Key phases in the ECoC Programme evolution 39

TABLE 4

Distribution of ECoCs against European geography and EU positioning 49

TABLE 5

Success strategies 67

TABLE 6

% of 1995-2003 ECoCs reporting artform prominence 73

TABLE 7

Priority communication targets 87

TABLE 8

Target groups for ECoCs 92

TABLE 9

Total overnights per year as a % of ECoC year 140

TABLE 10

% of national and city populations engaging with ECoC 146

TABLE 11

ECoC publications (2005 ± April 2013); % of documents referring to Palmer/Rae 190 BOX 1

The purpose of the ECoC initiative 38

BOX 2

Tourism impact examples 135

BOX 3

Physical development case study: Lisbon 1994 168

BOX 4 Challenges of ECoC management: Case study ± Essen for the Ruhr 2010 176 European Capitals of Culture: Success Strategies and Long-Term Effects 7

LIST OF FIGURES

FIGURE 1

Model of assessment 24

FIGURE 2

Document volume by type 27

FIGURE 3

Document volume by ECoC city 28

FIGURE 4

Document volume by type and publication year 29

FIGURE 5

% publications by impact area 31

FIGURE 6

Document volume by impact area and type 31

FIGURE 7

ECoC population size (in million inhabitants) 48

FIGURE 8

Levels of European Union Support, 1985-2012 ¼P 51

FIGURE 9

% of successful bid cities demonstrating particular strengths 56

FIGURE 10

% of successful bid cities demonstrating particular weaknesses 57

FIGURE 11

Number of projects by ECoC, 1994-2012 78

FIGURE 12

Number of events by ECoC, 1985-2012, by income group 79

FIGURE 13

Proportion of total ECoC budget spent on marketing and communications, by ECoC 84

FIGURE 14

Operating budget for ECoC 1985-2012 N\ (FRF ¼P 103

FIGURE 15

% Income by source for ECoCs 1985-2012, by ECoC 105

FIGURE 16

Average % income by source for ECoC 1985-2012, by EU Status 106

FIGURE 17

European funding as a proportion of operating budget, by ECoC (1985-2012) 107

FIGURE 18

Expenditure by area of activity, for ECoCs 1985-2012, by ECoC 109 Policy Department B: Structural and Cohesion Policies 8

FIGURE 19

Expenditure on infrastructure for ECoCs 1995-2012 N\ (FRF ¼P 110

FIGURE 20

Expected/anticipated long-term benefits of holding the ECoC title 114

FIGURE 21

% distribution of ECoC-related newspaper coverage for each country, by year 125

FIGURE 22

% distribution of ECoC-related newspaper coverage for each country± pre (x<0), during (x=0) and post (x>0) respective national ECoC years 126

FIGURE 23

Total arrivals per year as % of ECoC arrivals ± cities showing increase and decrease in years either side of hosting year 137

FIGURE 24

Total arrivals per year as % of ECoC arrivals ± cities showing increase in years both sides of hosting 138

FIGURE 25

Total arrivals per year as % of ECoC arrivals ± cities showing decrease during and after the hosting year 139

FIGURE 26

Volume of attendance at ECoC activity for ECoCs 1985-2012, by ECoC 145

FIGURE 27

Number of volunteers by ECoC, ECoCs 1998-2012 150

FIGURE 28

Ways in which ECoCs reflect the European Dimension (1995-2004) 180

FIGURE 29

% of publications referring to Palmer/Rae (2004a; 2004b) - per type & year (2005-April 2013) 190

APPENDICES

APPENDIX A: Full list of European Cities/Capitals of Culture

APPENDIX B: Selected Bibliography per ECoC City

APPENDIX C: List of Key Indicators and Sources

APPENDIX D.1: Expert Workshop I ± Agenda and Participants APPENDIX D.2: Expert Workshop II ± Agenda and Participants

APPENDIX E: Media Content Analysis per ECoC City

APPENDIX F: Content Analysis of Candidate City Strengths and Weaknesses APPENDIX G: Evaluating Aspects of the European Dimension European Capitals of Culture: Success Strategies and Long-Term Effects 9

EXECUTIVE SUMMARY

Background

This study, conducted over a period of seven months in 2013, is a response to the European Parliament 2012 call for a comprehensive assessment of the long-term effects of hosting the European Capital of Culture (ECoC) Programme, and the potential organisational and policy implications of these findings.

Research questions

The main aim of the study is to examine and interrogate the wealth of published material produced about respective ECoC host cities, in order to: identify the most common strategies for success; collate and review evidence of impacts and long-term effects from a cultural, economic, social and policy point of view; and understand the main recurrent challenges. The study addresses seven main research questions:

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