Public Art Research Project
REPORT OF STEERING GROUP
26 April 1996
Contents
Section
Page
1
Background
2
2
Research Project
4
3
Summary of PART findings
6
4
Basis for recommendations of Steering Group 10
5
Steering Group Recommendations
12
6
Conclusions
16
7
Acknowledgements
16
Appendix PART Strategy
17
1. Background
1.1
The Department of the Environment established an
artistic embellishment scheme in 1986 based upon the
principles of Per Cent for Art.
1.2
The Office of Public Works had established a similar
scheme in 1978.
1.3
In 1994, it was felt that a review of both schemes
would be valuable. Furthermore, given the projected
capital expenditure by Government departments under
the National Development Plan, it was felt opportune
to take a more strategic view of public art in general
and the "Per Cent" schemes in particular.
1.4
A Steering Group of public bodies with an
involvement in public art was formed to oversee the
project. In addition to the two departments/offices
with existing Per Cent schemes, representatives of
three other bodies were included in the Steering
Group:
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The Department of Arts, Culture and the
Gaeltacht because it has primary responsibility
for art at Government level.
The Arts Council because it is the advisory
body to the Government on arts matters.
Temple Bar Properties because they have had
experience of formulating a strategic approach
to public art.
1.5
The members of the Steering Group were: Michael
O'Connell, Dept. of Environment, Chairman Barry
Murphy, Office of Public Works Noel Delany, Dept.
of Arts, Culture and the Gaeltacht Patricia Quinn,
Temple Bar Properties Vivienne Roche, Arts Council.
1.6
The Steering Group commenced work in December
1994 and defined the objectives for the project. These
were summarised in the press release announcing the
project as follows:
The aim of the project is to facilitate the more
effective promotion of art in the public sector by
developing a strategy which furthers the
commissioning of art in a variety of sectors, in
particular by public authorities.
The project will specifically focus on the "Per Cent
for Art" schemes administered by the Department of
the Environment and the Office of Public Works, and
will examine them in the context of contemporary
visual arts practice generally.
1.7
The Steering Group decided to co-fund the
engagement of consultants to carry out research and
assist in the formulation of a strategy. Advertisements
were placed in the press and after the assessment of
submissions, a short list of applicants were
interviewed. As a result of this process, Public Art
Development Trust (PADT) of London, augmented by
two Irish-based consultants, were appointed to carry
out the consultancy. The project team adopted the title
Public Art Research Team (PART).
2. Research Project
2.1
The consultants commenced work in May 1995 and
completed their research in October 1995. A draft
final report was submitted to the Steering Group in
February 1996 and the final report was received in
March 1996.
2.2
The main elements of research carried out by the
PART were as follows:
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A compilation of an inventory of existing
public art commissioned by local authorities
through the Dept. of Environment scheme.
This stage built upon work already carried out
by one member of the PART team but also
required extensive primary research. An
assessment of the existing record-keeping and
inventories was also carried out.
Extensive consultations formed a significant
part of the research. Consultations were in the
form of bilateral interviews and group
discussions. They sought to determine the
current position of public art in Ireland and to
determine the views of the consultees on the
way forward. Consultations were held with
government departments, local authorities,
artists, artists representative organisations, arts
organisations and other bodies/organisations
with an interest in public art. In addition to
these consultations, the Steering Group heard
direct submissions from the two primary art
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representative and advocacy bodies, the
Sculptors Society of Ireland (SSI) and the
Association of Artists in Ireland (AAI).
8 case studies were carried out which focused
in more detail on particular aspects of public
art. These included a comparison between
management procedures in OPW and local
authorities, a comparison between public art in
water services projects in Ireland and in the
USA, public art in a rural landscape and the
experiences of Irish artists who have worked
in public art in Ireland and overseas.
Based on this research and their own experience and
knowledge, the PART report to the Steering Group
presents their findings and offers a strategy for public
art in Ireland.
3. Summary of PART findings
The main findings of the PART report are:
3.1
Issues common to both schemes / general issues:
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The Per Cent schemes do not fully represent
the breadth of artistic practise and expression
in Ireland, neither in the artists selected for
commission nor in the works of art
realised/purchased.
Artistic expression has often been pre-edited
by considerations of what the public
understands, what will be politically
acceptable and what will not draw the ire of
the media.
At all levels of the Per Cent schemes, the
presence of a strong individual, keen to work
with artists, has been a key factor in the
provision and quality of art.
Public art is marginalised from key arts
organisations, art schools, critics and the
general discourse on contemporary art in
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Ireland.
A pattern of "public art artists" can be seen to
be emerging, whereby a number of artists
repeatedly are awarded commissions.
While there was a perception that only
"insiders" receive the commissions through
competitions run by SSI/AAI and the National
Sculpture Factory (NSF), the PART could not
verify if this was the case or not. Given that
there are a limited number of "active"
participants in the field however, and with the
limited amount of information available, it can
be understood how this perception exists.
Arts organisations and professionals have not
been able to fully demonstrate their skills in
managing commissions. As a result, artistic
standards have suffered.
The current draft ICTU Code of Practice for
the Commissioning/Purchase of Art for Public
Places is restrictive and often inappropriate.
Anonymity does not make for a better
selection process.
Open competitions are costly and timeconsuming for all parties and should be the
exception rather than the rule.
Artists are generally not brought in early
enough to projects. However a more holistic
approach is demanded than a simple demand
that artists be in at the inception of projects. It
is not always appropriate to do so.
The definition of the brief is problematic and
the briefing and guidance given to artists is
often inadequate.
There is a lack of resource to provide proper
project management for artists. Available
expertise, from organisations and individuals,
is not tapped. Where it is availed of, it is often
for limited services and is badly paid.
To a large degree, artists are subsidising the
Per Cent schemes through low fees and
inadequate budgets. This occurs particularly
where no fees are provided for design
proposals, no payment is made for site visits,
research or testing and no fees are set aside for
additional services.
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3.2
OPW Scheme:
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3.3
Comprehensive contractual arrangements are
seldom entered into between artists and the
commissioning body.
There is no policy or agreed procedures for
removing works of art from public ownership.
Visual documentation of Per Cent
commissions or acquisitions by and large
either does not exist or is not in an accessible
format.
Information for the public is widely lacking,
either in the form of a plaque near individual
works or in the form of information sheets,
maps etc.
The works of public art are an under-utilised
educational resource.
Professional training for artists on the wider
issues around public art is not provided for in
the educational system nor routinely otherwise
available.
There is room to improve the artistic quality
and range of the OPW scheme.
The OPW scheme has allowed unused Per
Cent funds on one construction project to
augment the allocation to another project.
The OPW scheme allows for works to be
moved between State buildings and properties.
The OPW scheme is operated through a
centralised decision-making committee - the
Art Management Group.
The OPW generally selects for commissions
through confined competitions.
The OPW has developed a computerised
inventory of all artworks in its care.
The OPW has endeavoured to increase public
awareness and access to public art mainly
through its annual "Art of the State"
exhibition.
DoE Scheme / Local Authorities:
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The Dept. of Environment have played a
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3.4
passive rather than proactive role in the
operation of their Per Cent scheme.
The limits to the existing Dept. of
Environment scheme in terms of funding,
location and other issues are limiting the
success of the current scheme.
The existing circulars are inadequate to guide
local authorities in the operation of the
scheme.
Applications by local authorities for funding
through the scheme are not assessed in a
consistent fashion.
Record-keeping of projects funded through the
scheme are inadequate.
Local authorities widely lack the expertise or
resources to manage, maintain or conserve the
works of public art for which they are
responsible.
The current provision of arts officers in local
authorities is not an adequate argument for
devolving all responsibility for Per Cent
schemes to local authorities.
Arts officers in local authorities are generally
not given adequate back-up support and in
some cases do not feel fully integrated into
local authority structures.
There is no forum at local authority level to
discuss public art.
By and large, local authorities regard the
works they commission as being of local value
only, rather than of national or international
interest.
Arts Council:
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The Arts Council has a primary role to play in
ensuring the highest quality of art in the public
domain through advocating new policies,
planning processes and strategies for public
art.
The Arts Council is referred to in the DoE and
OPW Percent for Art Scheme circulars as the
advisory body to whom all those making
application should refer.
The Arts Council has been less proactive in
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recent years than in the 1980's when Arts
Council policies provided a lead in the
development of public art.
The PART recognises that any Public Art
Strategy will rely on its integration into
national arts policies and plans such as the
Arts Council's "The Arts Plan 1995-1997".
The Arts Council is not adequately resourced
at present to fulfil the potential of its advisory
role in relation to public art.
The Arts Council should be in a position to
work with other organisations in advising on
public art.
4. Basis for recommendations of Steering Group
4.1
The Steering Group has considered the findings of the
PART report and the strategy proposed by them. They
have noted that "the most important objectives set out
in the PART report to the Steering Group are to
improve the artistic quality of public art, diversify the
range of initiatives, provide a creative and
professional working environment for artists, create
alliances between organisations (including local
authorities) and provide the public with better access
and information on the works of art". The Steering
Group has received direct submissions from the
Association of Artists in Ireland and the Sculptors
Society of Ireland. The Steering Group have given
extensive consideration to the issue of public art and
have had wide-ranging discussions within the group
on the issue. In all of this, the Steering Group has had
regard to the following factors:
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An awareness of the existing level of
engagement by public bodies in public art
issues.
A recognition of the central role of the artist in
public art.
A recognition that the agreed strategy must
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4.2
lead quickly to feasible actions.
The need to address all the stakeholders in the
area of public art.
The need to improve the artistic quality and
diversify the range of public art commissions.
The need to see public art as an integral part of
general contemporary art developments.
The need to improve the capability of public
bodies to maximise the potential of public art.
The Steering Group is entirely aware that the
measures proposed will require the application of
extra resources by all the parties to the
implementation of this report.
5. Steering Group Recommendations
As a result of the considerations set out above, the
Steering Group makes the following
recommendations:
5.1
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The existing Per Cent for Art schemes
(Dept.of Environment and OPW) should be
revised and extended to all government
departments with construction budgets.
In the light of the recommendation of a national
approach to public art, it is recommended that a
revised "Per Cent" scheme model be developed. This
model would be applied immediately to the existing
schemes and also be the basis for other government
departments with construction budgets.
The model would address the issues set out in the
PART report and would cover:
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Financial arrangements.
Preparation of briefs.
Commissioning/Purchasing procedures.
Contractual arrangements.
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Artistic issues.
Maintenance of completed works.
Inventories, record-keeping and public
information.
The revision and development of the existing schemes
will be overseen by the Public Art Co-ordination
Group and will be a consultative process - with the
Public Art Advisory Panel in particular .
5.2
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A national approach to public art should be
developed.
This will be achieved by the establishment of an interdepartmental Public Art Co-ordination Group. This
group will be led by the Dept. of Arts, Culture and the
Gaeltacht and will include representatives from the
Arts Council and from all government departments
with construction budgets.
Its main function will be to coordinate, promote and
support initiatives in public art in government
departments.
It will seek to develop existing schemes in order to
enhance the quality of public art and diversify its
range.
It will promote the concept of public art amongst
other public bodies.
The arts community and other interests will be given
access to the Public Art Co-ordination Group through
the a Public Art Advisory Panel. This will be
established and operated by the Arts Council. It will
be composed of experts and practitioners in the field
of art and other people who have an impact on public
art.
The operation of these two groups should be
supported by the appointment/designation of a Public
Art Officer within the Arts Council.
5.3
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As a first step, the Steering Group
recommends that a revised funding formula
be put in place.
This formula should be common to both existing
schemes and to all future schemes. It seeks to address
the need to provide greater funding for large
construction projects.
The revised formula is as follows:
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Projects are allowed dedicate 1% of funding to
an arts project for construction projects costing
up to £2 million giving a maximum art budget
of £20,000.
For projects costing between £2 and £5
million, a further 1% up to £10,000 is allowed
giving a maximum art budget of £30,000.
For projects between £5 and £10 million, a
further 1% up to £10,000 is allowed giving a
maximum art budget of £40,000.
For projects costing in excess of £10 million, a
final 1% up to £10,000 is allowed giving a
maximum art budget of £50,000.
Thus the overall maximum public art budget available
to a construction project is raised from its current
£12/20,000 to £50,000. However to yield £50,000,
construction expenditure of £10 million would be
necessary which equates to 0.2% for art.
5.4
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The Steering Group also recommends that
the principle of pooling of Per Cent funds
be adopted.
Pooling should occur in three ways.
For smaller projects, participants in the Per Cent
scheme should be allowed accumulate a pool of funds
in order to make the funding of an art work
worthwhile.
At local level, participants should be allowed
cooperate with each other by combining funds
generated by different Per Cent schemes to co-fund a
suitable art project.
At national level, the initiatives and actions of the
PACG (outlined in 6.6 below) should be funded, at
least in part, by pooling funds generated by
construction projects but not drawn down.
Participants in the Per Cent schemes may take further
initiatives in relation to the pooling of funds generated
by construction projects but not drawn down.
The precise mechanisms and conditions for pooling
funds will form part of the revision of the Per Cent
schemes outlined at 5.1 above.
5.5
5.6
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It is also recommended that one section in
the Dept. of Environment co-ordinate the
operation of the scheme by the Dept.
Other recommendations are:
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Inventories of public art already in
existence should be developed and
procedures put in place to make them
publicly accessible.
The provision of public information on
public art projects should be an integral
part of public art programmes.
Measures should be taken to use public art
as an educational resource.
Training and information should be
supplied to officials concerned with public
art.
Measures should be taken to ensure that the
art is maintained and preserved.
Initiatives should be taken to diversify the
nature of public art through pilot schemes
and experimental projects. Such initiatives
should be co-operative and seek the
involvement of all parties with a
contribution to make to the evolution of
public art.
Government departments/offices not
included in the PACG should also be
encouraged to develop public art
programmes/schemes, as should other state
bodies.
The development of these recommendations into
concrete actions will be the task of the proposed
Public Art Co-ordination Group with the advice of the
Public Art Advisory Panel.
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5.7
It is recommended that Government
endorsement of the report and
recommendations of the Steering Group be
sought.
In order to secure this, a Memorandum for the
Government, sponsored by the three relevant
Ministers and seeking approval to establish the
proposed structures and the adoption of this report
should be prepared.
6. Conclusions
6.1
The report of the Steering Group has been
unanimously adopted by the group.
6.2
The Steering Group has a common view on how
public art should develop.
6.3
The Steering Group has a common belief that public
art can contribute immensely to Irish society.
7. Acknowledgements
7.1
The Steering Group is grateful to Public Art
Development Trust team for the work they have
undertaken.
7.2
The Steering Group is grateful to everybody who has
contributed their knowledge, opinion, expertise or
experience to the project.
7.3
In particular the Steering Group acknowledge the
assistance of Mr. Tim Mawe, Mr. Pat Healy and Mr.
Ambrose Murray of the Dept. of Environment, Ms.
Mary Heffernan of OPW and Mr. Chris O'Grady of
the Dept. of Arts, Culture and the Gaeltacht.
Appendix
PART Strategy
1
The PART strategy is built upon a centralised national
approach to improving the artistic quality of public
art.
It foresees a lead role for the Department of Arts,
Culture and the Gaeltacht (DACG) in coordinating
and administering such an approach.
2
PART propose a national structure with two
complementary tiers:
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A Public Art Advisory Panel (PAAP)
comprised of national and international arts
professionals should be established by DACG
to advise on policies and planning and to
provide overall artistic direction to a range of
public art initiatives which support a broad
range of artistic expressions and a variety of
creative processes of artists.
A Public Art Co-ordination Group (PACG)
comprised of representatives of 3 government
departments and representatives from the Arts
Council, Irish Museum of Modern Art
(IMMA) and arts individuals or organisational
representatives should be established by
DACG. This group would co-ordinate all Per
Cent funds and capital projects and with the
PAAP would outline the development of a 3-5
year Public Art Plan and determine the
projects to occur each year within the Annual
Public Art Plan.
3
PART propose that greater resources be applied to
public art. They propose a broader application of the
available funds and the pooling of available funds to
provide the maximum flexibility for their use.
4
PART propose measures to strengthen the roles of the
Arts Council, OPW, Department of Environment and
local authorities.
5
PART make a range of proposals relating to:
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CONTENTS
Artistic Issues
New Public Art Initiatives
Project Management
Inventories and Collection Management
Preservation and Maintenance of Public Art
Public Information and Access
Professional Development, Training and
Education Issues