Abstract
This chapter highlights the need for a change in perspective in the approach to cultural heritage management towards the adoption of a systems view of governance. Given the current unsatisfactory performance in the management of Italy’s rich cultural heritage, we suggest that a dominant traditional view focused on conservation and protection should be integrated with more effective action through enhancement. The key elements of a model of cultural heritage system governance are illustrated from the perspective of the viable systems approach.
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Notes
- 1.
The locutions ‘beni culturali’ (cultural goods) and ‘cultural heritage’ that we use in this contribution qualify as a view that is focused respectively on either individual items or on the entire cultural heritage system.
- 2.
The “capitalisation” of the culture follows, in particular, two phases of the process of the formation of cultural heritage: that of abstraction, i.e., awareness of a change that puts the artefact out of the utilitarian field, and that of collectivisation, in which the object acquires an identity asset that justifies its status as collective management. Cf. Gatti and Iandolo 2011. See also Barile et al. 2012; Barile and Saviano 2012.
- 3.
To investigate organisations it is generally possible to adopt two methods: an analytical approach, consisting of the reduction of the phenomenon to investigate its elementary parts, leading to knowledge of the whole through the summation of the results obtained in the analysis of the individual parts; and a systems approach, which denies that it is possible to understand the whole through a purely analytical approach and suggests that such understanding can be reached through a more holistic view, at least when the entire phenomenon to be studied is characterised by high interaction in an open context. Cf. Panati and Golinelli 1998, pp. 19–20. On the general system theory. Cf. Von Bertalanffy 1968.
- 4.
The stream of studies on the viable systems approach in business management has developed in Italy in the last decade since the work in three volumes of Gaetano M. Golinelli L’approccio sistemico al governo dell’impresa published by Cedam, and of several works of Sergio Barile. Cf. Golinelli 2000, 2002b, 2005, 2010, 2011b; Barile 2000, 2008, 2009; VV.AA. 2011. Cf. also Barile et al. 2012; Barile 2013.
- 5.
Cf. Barile and Saviano 2011.
- 6.
Cf. Barile 2011a.
- 7.
- 8.
In his speech to the Chambre on December 2nd, 1974, Prime Minister Aldo Moro entrusted Senator Giovanni Spadolini with the task of chairing the new ministry with a commitment to a normalisation of legislation, as the uniqueness of the need requires, Spadolini 1975, p. 109.
- 9.
Legislative Decree n. 368 of October 20, 1998. The new ministry is given all the powers belonging to the Ministry of Cultural and Environmental Heritage, integrated with competences in the promotion of sport and sports facilities and the promotion of entertainment activities in all forms: from cinema to theatre, dance, music, travelling, etc. Subsequently, by the Decree-law of 18 May 2006 no. 181, the skills regarding sport are assigned to the new Ministry for Youth and Sports.
- 10.
By the Decree of the President of the Republic of 26 November 2007 n. 233, the new regulations for the reorganisation of the Ministry of Heritage and Culture were approved. The Ministry, which in 2013 was given the powers of the tourism and assumed the current denomination of “Ministero dei beni e delle attività culturali e del turismo” (Ministry of Cultural Heritage and Tourism), represents the Italian government ministry responsible for the protection of culture and entertainment and for the protection and conservation of artistic heritage, landscape and tourism. The organisational structure of the department remains very articulated despite the various rationalisation measures, however. The substantial changes implemented through the last reorganisation reduced the number of general directorates from nine to eight by combining some offices and powers and in particular by establishing a directorate for the enhancement of cultural heritage, with specific responsibilities for the promotion and enhancement of cultural heritage. Currently, therefore, the department is divided into eight general directorates. Advisory bodies also operate at the central level, including the Higher Council for Landscape and Cultural Heritage, with expertise in the technical-scientific field of cultural heritage and landscape, and seven technical and scientific committees with specific responsibilities. Completing the organisational structure at the central level are a number of institutions with special functions under the direct control of the Ministry in addition to the four core institutes belonging to the General Secretariat (the Central Institute for Cataloguing and Documentation, Precious stones, the Central Institute for the restoration and preservation of archival and library and the Institute for Conservation and Restoration). The large peripheral organisation linked to the ministry is primarily articulated in the Regional Directorates for Cultural Heritage and Landscape (DRBCP), on which the superintendents, the state archives, the state libraries, the museums and other autonomous institutions depend. This organization is currently undergoing a revolutionary restructuring process (See http://www.beniculturali.it)
- 11.
Cultural goods, decomposed into types, landscape and landscape assets are assigned to the different and separate ministerial powers. These powers engage in an essentially vertical dialogue with the organisational structures superordinate or subordinate to them; they only rarely engage in a horizontal dialogue, internal to the ministerial apparatus, that is capable of fostering coordination between the needs and the potential of cultural heritage. Cf. Barbati 2010.
- 12.
In the organisational architecture of the Ministry, six out of the eight general directorates have sectoral expertise, one directorate general has expertise in the processes of valorisation and one directorate general has functions in the government of the structure. The same advisory bodies and the Board of Governors have technical-scientific skills in the various fields related to cultural heritage and landscape.
- 13.
Issued pursuant to Article 10 of Law number 137 of 6 July 2002 amended by Legislative Decree 24 March 2006, n. 156, Legislative Decree 24 March 2006, n 157 and by Legislative Decree 26 March 2008 n. 62 and Legislative Decree of 26 March 2008 n. 63. Cf. www.beniculturali.it.
- 14.
As many as 49 (2013 updated list) Italian sites are included in the list of UNESCO world heritage sites. With Law n. 184 of 6 April 1977, the Italian state ratified the Convention for the Protection of Cultural and Natural Heritage of 1972, the international treaty adopted by the General Conference of UNESCO on 16 November 1972 to ensure the identification, preservation, knowledge and transmission to future generations of the cultural and natural heritage.
- 15.
Regarding this point, refer to the exhaustive discussion in the next chapters.
- 16.
The composition of the commission, updated with subsequent decrees, is currently defined on the basis of the Decree of 24 May 2007 issued to make the performance of the commission’s official duties more effective. In addition to various institutions, the commission includes the representatives of different ministries (the Ministry of Economy and Finance, the Ministry of Cultural Heritage and Activities, the Ministry of Education, University and Research, the Ministry of Economic Development and the Ministry of Environment and Protection of Land and Sea).
- 17.
- 18.
To implement the international commitments, the minister of agriculture, food and forestry established by decree on 12 June 2009 and subsequent amendments at the cabinet office, the UNESCO Working Group, whose task is to address the implementation of the commitments undertaken by UNESCO, to ensure consistency with policy priorities, and to ensure the proper implementation of the activities outlined in the preamble of the decree and in particular on the World Intangible Heritage of Humanity and the program Man and Biosphere (MAB). http://www.politicheagricole.it/Ministero/Unesco/default downloads 13 December 2010. The specific areas of interests of MiPAAF are attributable to the Convention on the Protection of the World Material Heritage of 1972, the Convention for the Safeguarding of the Intangible Cultural Heritage of 2003 and the Programme Man and Biosphere for the protection of biodiversity. www.politicheagricole.it. These issues are the subject of extensive discussion in the following chapters. Cf. Petrillo 2012.
- 19.
However, these committees have rarely been established and have rarely been effective. For the most important law in that regard, refer to the Codice Urbani (Article 112).
- 20.
What stated could be represented in the provocative question: “governing to make culture or making culture to govern?”
- 21.
On the role and configuration of the Governing Body and the relationship with the relevant supra-systems, reference is made to Golinelli 2005. The interpretation of the degree of relevance of the main supra-systems of reference for the governance of cultural goods is proposed in the last paragraph of this contribution.
- 22.
Similar connotations of the governing and operating structures are typical of territorial systems.
- 23.
The meritorious conception of cultural heritage is considered a remedy that is necessary but precarious regarding the approach to valorisation. Cf. Montella 2010, p. 17.
- 24.
On this point of particular interest, we will return in later discussions.
- 25.
In the context of cultural heritage, the terms preservation and conservation are generally used interchangeably. However, it is useful to remember that preservation, which consists in keeping one thing so that it lasts a long time, that you do not damage or not spoil it; safeguarding an object to prevent its consumption, loss or dispersion refers to the action on the object; protection, means to defend, to protect against any damages, actions, or injuries, especially with appropriate measures; action, then, is on the outside of the object (context). The concept of protection, in essence, makes explicit the need to adopt measures to make the action of preservation concrete. This interpretation is consistent with the interpretation of the concept of systemic protection and highlights how the protection is aimed at the conservation.
- 26.
Regarding the dichotomist view, see also Quattrociocchi 2011.
- 27.
The limitation of the fruition is not, however, accepted as a solution for conservation. Cf. Doxa Survey 2003.
- 28.
From a systems perspective, it is clear that the concept of value is relative to the context and the subject in which perspective is defined. The evaluation of cultural heritage must, therefore, be taken by specifying context and stakeholders. Economic value and cultural value remain two distinct concepts, but in a certain perspective, connected when the economic value is linked to the cultural function of the goods (rather than to the material of which it is made or to possible alternative uses that can be considered). It is obviously one of the possible dimensions through which the cultural value can be expressed and therefore measured.
- 29.
- 30.
According to this view, the approach of “scheduled” conservation, understood as a long-term process, is consistent with the proposed systems interpretation. Cf. Della Torre 2010, pp. 47–56.
- 31.
The vision of intangible cultural heritage is a central moment in the evolution of the concept of cultural heritage and of the same culture and will be the subject of detailed discussion in the next chapters, particularly in the essay of Scovazzi.
- 32.
Cf. Barile and Saviano 2011.
- 33.
Here the sense of enhancement is clearly understood as an “active” form of protection. Cf. Montella 2002, pp. 24–25 (citing Stella Richter and Scotti 2002, p. 389).
- 34.
The November 16, 2010 UNESCO recognition of the Mediterranean diet as world heritage marks another evolutionary step and explains the gradual sedimentation of a new vision of cultural heritage. Cf. Scepi and Petrillo in this volume.
- 35.
In the service-dominant logic perspective mentioned in Chapter Two, goods are considered as the “mechanisms of distribution of value”. The service logic, as explained in the previous chapter, is central to the redefinition in the systems view of the use offering of cultural heritage. Cf. Lusch and Vargo 2006; Polese Russo Carrubbo 2009; Vargo and Lusch 2008.
Regarding the integration of service-dominant logic and service science perspectives from a viable systems approach, see Barile and Polese 2010a, b; Barile and Saviano 2010; Saviano et al. 2010; Golinelli et al. 2010; Spohrer et al. 2010; Barile et al. 2013; Saviano and Caputo 2013.
- 36.
(Phys. 195 b 21–25; Stanford Encyclopaedia of Philosophy, http://plato.stanford.edu/entries/aristotle-causality).
- 37.
- 38.
The topic was the subject of an interesting meeting on Cultural Heritage and Business Studies organised by CUEIM and held in Gaeta on 24 and 25 June 2011 in which attention was focused on the problem of the qualification of the concept of value in the context of cultural heritage from the perspective of business scholars and on the growing interest in sustainability.
- 39.
In this regard, with particular reference to the problem of managerial education, it has been argued that economic thought, technical mentality, and humanistic knowledge must and can interact in an open manner by engaging with each other, thus promoting sustainable education qualified by a managerial judgment capability and sensitivity to context, reflexivity, propensity to dialogue with different positions, and commitment on issues of common interest. Cf. Golinelli 2011a, b, c.
- 40.
Regarding the relationship between sustainability and enhancement, see Vagnani and Volpe 2011. Sostenibilità, creazione di valore e teoria dell’impresa: alcuni spunti di riflessione. Beni culturali e studi d’impresa, Gaeta, June 24–25; Petrillo 2011. Valorizzazione dei beni culturali in una prospettiva di sostenibilità e sviluppo: il ruolo delle istituzioni. Beni culturali e studi d’impresa, Gaeta, June 24–25.
- 41.
Cf. Schillaci and Cristina 2010.
- 42.
Golinelli 2002a.
- 43.
Ibid. Cf. also Barile and Di Nauta 2011.
- 44.
- 45.
Cf. Barile 2011b.
- 46.
Cf. Montella 2002.
- 47.
Cf. Lusch and Vargo 2006.
- 48.
Cf. Spohrer et al. 2007.
- 49.
Cf. Barile and Saviano 2014.
- 50.
- 51.
Cf. Montella 2009a. The role of the territorial context is expressed effectively in the concept of “territory as a widespread museum”. Ivi, p. 15. Using this perspective, the idea of cultural heritage geography is defined.
- 52.
- 53.
Cf. Saviano and Magliocca 2003.
- 54.
Contieri 2000.
- 55.
Cf. Saviano and Iorio 2010.
- 56.
Consensus is increasingly an indispensable market condition. Cf. Montella 2009a.
- 57.
Montella 2009a.
- 58.
On decentralisation and outsourcing in the management of cultural heritage, Cf. Cammelli 2002.
- 59.
- 60.
Paragraph 9 of the same article states that regardless of the agreements of para 4, agreements may be concluded between the state, regions and other involved territorial public and private bodies to regulate common services for the use and enhancement of cultural heritage.
- 61.
Cammelli 2002.
- 62.
On the basis of the information variety model, guided by the principle of Ashby requisite variety (1971), it is possible to represent the viable system through the articulation of its overall variety of information units, interpretation schemes and categorical values, where its identity is encoded and structured, determining being and acting in the context of reference. Cf. Barile 2009a, b; Calabrese et al. 2011.
- 63.
From the viable systems approach perspective, to the extent that the party (suprasystem) holds a critical resource and is able to exercise an influence, by adopting an effective mechanism premium/penalty, the observed system will perceive it as relevant and will seek to achieve the consonance by aligning to its expectations; otherwise the system will tend to ignore it, preferring other purposes.
- 64.
Fundamental at this level, the European Landscape Convention signed in Florence on 21 October 2000 considered the landscape as a collective good extended to the entire territory, a complex entity that cannot be used out of the free and aware choices of programming processes.
- 65.
Within the Italian Ministry of Culture, the UNESCO World Heritage Office coordinates activities related to the implementation of the Convention on the Protection of the World Cultural and Natural Heritage. Established in 2004, the office also performs tasks of scientific and technical support to the Permanent Inter-Ministerial Working Group for UNESCO World Heritage, in operation since 1995 and formally established in 1997 at the Ministry of Culture. www.unesco.beniculturali.it.
- 66.
See the essay of Scepi and Petrillo in this volume.
- 67.
Cf. Montella 2009a.
- 68.
Cf. Montella 2009b.
- 69.
Cf. Barile and Saviano 2014.
- 70.
We refer to the well-known concept of information asymmetry within the cited information variety model. As mentioned in the previous chapter with reference to the service-based dynamics of fruition of cultural heritage, the outcome of the interaction is significantly affected by the information asymmetry level that should be evaluated not only in terms of information units but also in terms of interpretation schemes and value systems. Cf. Barile 2009a.
- 71.
The alignment of information varieties, starting from a dialogue between economy and culture, places the problem of codes within the communication. Cf. Montella et al. 2010, p. 149 et seq.
- 72.
Cf. Barile et al. 2012.
- 73.
- 74.
The consideration of principles that drive this function can only arise from the conjunction of Articles 3 and 9 of the Italian Constitution, that completion: “la Repubblica promuove lo sviluppo della cultura”, “tutela il paesaggio e il patrocinio storico e artistico della Nazione” and “rimuove gli ostacoli di ordine economico e sociale, che, limitando di fatto la libertà e l’uguaglianza dei cittadini, impediscono il pieno sviluppo della persona umana”. Ivi, p. 31.
- 75.
- 76.
The utility expected from the current culture is multidimensional, global, systemic and economically mixed, as it responds to a very heterogeneous, public and private demand. Cf. Montella 2009b, p. 24.
- 77.
It is not that the knowledge of strategies, techniques, instrumentation, methods, and professional skills (are) necessary for optimal objectives of preservation and enjoyment defects. Cf. Montella 2009a, p. 10.
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Barile, S., Saviano, M. (2015). From the Management of Cultural Heritage to the Governance of the Cultural Heritage System. In: Golinelli, G. (eds) Cultural Heritage and Value Creation. Springer, Cham. https://doi.org/10.1007/978-3-319-08527-2_3
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DOI: https://doi.org/10.1007/978-3-319-08527-2_3
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Publisher Name: Springer, Cham
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Online ISBN: 978-3-319-08527-2
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