So there we have it. Earlier this week the culture Minister, Ed Vaizey, confirmed the widely rumoured transfer to the British Film Institute of responsibility for delivering UK film policy. Though understandably guarded, industry responses have been broadly positive, welcoming news that Lottery funding for film will increase to £43 million by 2014, and the existing tax credit will continue for the foreseeable future.
Other changes were announced, including the agglomeration of all but one of the Regional Screen Agencies into Creative England, while Film London takes the lead in promoting inward investment.
What the Minister didn’t say, of course, is how all these changes will manifest themselves. We’re told there’s a period of due diligence to go through, in addition to the obligatory industry consultation. ‘This is the beginning of a process,’ said the Minister on Monday, ‘not the end.’
Alongside the legal legwork and attentive listening, Vaizey will chair a Ministerial Film Forum to meet every six months starting in January. The Minister said the group, whose membership is yet to be announced, will start with a ‘run around the houses to address key issues.’
I’d like to humbly suggest the very first task of the Forum should be to establish the parameters of ‘a sustainable independent British film industry’, one of the stated goals for film policy set out in the Minister’s speech. It’s a phrase that needs to be unpacked for it to have any genuine utility, and it comes with plenty of historical baggage. Oh yes.
For starters, the word ‘sustainable’ has warm and positive connotations, making it popular within policy circles. But just take a moment to consider the concept- what does it actually mean?
Truth is, when deployed without further elaboration it is an entirely empty term. And its use within the context of film policy obscures rather than illuminates a number of heavyweight issues, which is probably why the UK Film Council chose to drop it a few years back. But it wasn’t always thus.
To explain further, let’s make a distinction between what we’ll call the hard concept of sustainability and the soft. The hard conception implies an enterprise capable of perpetuating itself (and, ideally, growing) without outside support or influence. It’s a version of what Sir Alan Parker, former UK Film Council Chair, dismissed as the ‘self-sustaining, purely British film industry’ that ‘has been the Holy Grail for Government and industry for many years’. In contrast, the soft concept is the idea that a given state can be maintained at a desired level without exhausting available resources. Doesn’t sound so compelling, but it may be much more realistic.
If a course of action is pursued in accordance with the hard concept, the question of success comes down to whether or not outside support or influence is required to keep the industry afloat. If the soft conception determines policy then the question instead becomes: what level of activity is it desirable to maintain? Either way, attention must be paid to what the end destination looks like, and what route to take to get there.
Later in Sir Alan’s speech, delivered back in 2002, he poured scorn on the idea of ‘building a stable of rights owning film production companies’ as the basis for a sustainable industry. Sustainability, the early UK Film Council argument ran, was attainable only by means of distribution-led production operating from a film hub of world-class skills and infrastructure capable of attracting international investment.
Not everyone bought the argument (far from it), and in the years to follow the lack of credible evidence of ‘sustainability’ didn’t help to win over the naysayers. Problem was, no formal success criteria were ever adopted internally or approved externally. So while plenty of data were collected, analysed and published, and arguments mounted about specific achievements, the case was never convincingly made in terms of sustainability. There was no coherent framework for judging the various statistics in a way that could either substantiate or repudiate the argument.
The enemy of reason is not ignorance of facts, but a lack of understanding. And here we come to the nub of the matter. What’s needed, right from the start of this ‘exciting new vision for the British film industry’ (that’s the Minister talking), is clarity around the objectives for film, and- most importantly- a set of indicators (that may be quantitative, qualitative or both) against which to gather market intelligence and judge progress towards the goal.
It won’t be an easy task, because there are likely to be many factors at play in a sustainable industry (however one chooses to define it, whether a hard or soft conception, or something in between).* But the transparency, discipline and rigour involved are crucial to ensure both continuing support for film policy among industry players and its successful delivery over the coming years.
If you’ve followed this blog before, you can probably guess where this is leading. I think what’s really needed, and was conspicuous by its absence from last Monday’s speech, is a film policy research function capable of gathering, interpreting and disseminating data that speak directly to the indicators derived from agreement of what constitutes a sustainable industry.
I'm not going to get into the question of whether 'a sustainable independent British film industry' is even the best and most appropriate goal of film policy. Whatever the goal, my argument remains the same. It comes down to transparency, accountability and good governance.
In closing I’d like to offer up one further thought while it occurs to me. The Minister’s speech specifically mentions Pact’s proposals, but what does sustainability mean outside the direct interests of producers and production companies? What does it look like from the perspective of sales agents, post-production houses, distributors, facilities companies, exhibitors & film societies, retailers etc.? In other words, what does sustainability mean in the context of every other link in the supply chain (or value chain, if you prefer to look at things that way)? How do these perspectives cohere and diverge? Can one industrial policy accommodate them all, and is it even desirable to do so? Sir Alan didn’t think so, back in 2002. ‘We are not one film industry’, he said. ‘but many industries. One solution doesn’t fit all.’ The Minister would do well to remember this when drawing up the invitation list for his first Film Forum.
* (A side note- is ‘a sustainable industry’ the same as a collection of ‘sustainable organisations’? There’s some slipperiness in the Minister’s speech: the terms of debate shift in scale, back and forth, from the level of individual companies to a whole class of industry.)