1. Cultural policy system
North Macedonia
Last update: September, 2021
The general objectives of cultural policy are provided via the Constitution: civil rights and freedoms, creative autonomy, the obligation to support and develop culture, the right of the different ethnic or national groups to establish institutions for culture and art, the protection of the cultural and historical heritage, etc. During the first decade after gaining independence (1990) there was no general recognisable concept behind the cultural policy system, neither did it follow any particular model. Any developments and changes in the cultural policy "system" were ad hoc and driven by political movement towards decentralisation, multiculturalism etc. The Law on Culture (1998) identified some objectives as being of "national interest", such as establishing general conditions for the continuity of culture; creating favourable conditions for outstanding cultural achievements; encouraging cultural diversity; cultural development etc.
Since the introduction of budget financing in the cultural sphere in 1990, financial resources are being allocated to institutions on a yearly basis to cover: salaries and other allowances (i.e. per diems and travelling allowances for permanently employed staff), allowances for annual programmes, investments, heating of buildings, insurance of equipment, buildings, exhibitions, etc.
However, changes took place in the following areas:
- privatisation of the publishing houses (1995);
- equal recognition of public and private entities that work in the field of culture;
- new higher taxes on cultural goods and services; and
- symbolic privileges for donations and sponsorships for cultural activities, etc.
In December 2003, the government passed the Decision on the Network of National Institutions in the Field of Culture. It provided the framework within which the network of cultural institutions (national and local) was to be organised and re-allocated responsibilities for culture to the municipalities.
In 2004 for the first time, a National Programme for Culture 2004-2008 was adopted by the Parliament. According to this National Programme, the basic principles of the cultural policy were:
- attainability
- diversity
- openness
- responsibility and
- flexibility
The Law on Culture (1998) specifies some cultural objectives as being of "national interest", e.g. establishing general conditions for achieving continuity in culture, creating conditions for outstanding cultural achievements and their protection, encouraging cultural diversity, protecting and developing the cultural identity of different communities, cultural development etc.
On the other hand, according to the National Programme for Culture 2004-2008 (which was the first of its kind in Macedonia), the main cultural policy objectives were:
- decentralisation
- development
- protection and (re)creation of the cultural heritage
- creativity, with special focus on young people
- creating favourable conditions for outstanding cultural achievements and
- cultural management
This National Programme also formulated the following cultural policy priorities:
- decentralisation
- balanced support to cultural heritage and contemporary culture
- cultural management
- promotion of the cultural identity of the communities
- cooperation with NGO's and
- international regional cooperation
However, very little was put into practice.
After the constitution of the new coalition Government (June 2017), in May 2018 a new National Strategy for Cultural Development in the Republic of Macedonia 2018-2022 was adopted by the Parliament. Its general goals are equal cultural rights for all and freedom and diversity for artistic creation and cultural identities. One of its specific goals is structural reform in the field of culture.
The new National Strategy for Cultural Development also defines principles of the strategic development, as follows:
- Democratisation of culture and cultural democracy
- Creativity, pluralism, inclusivness
- European context
- Liberation in the field of culture etc.
This document also formulates the basic principles of the cultural strategy and the main directions of the reforms, the basic instruments for realisation of the priorities, the necessary reforms in the Ministry of Culture, strategic plans for each cultural domain etc.
The document is followed by an Action plan for implementation of the Strategy, including necessary measures, expected effects and indicators, as well as terms and financial indicators.
The opposition did not support the new National Strategy.
Background
After World War II, the Republic of Macedonia became part of the Yugoslav Federation; therefore, its cultural policy was subject to the state ideology of building a socialist culture. During that period (1945-1990), cultural policy went through three main development stages:
- a centralist and state-run period which lasted from 1946 until the mid-1950s
- a transitional period that lasted until 1974 and contained some elements of decentralisation and
- from 1975 onwards, a phase of self-management began which defined national and municipal responsibilities for culture including decision making and funding.
After 1945, the role of the government in culture was vastly extended. New institutions were established, programmes were set up to train qualified staff to run these institutions and the culture and the arts were popularised. In the past, Macedonian culture hardly had an opportunity to flourish as its own national culture. It is therefore understandable that there was a certain amount of national and romantic spirit throughout this period.
Following a long period of strict centralism, like other Yugoslav Republics, Macedonia entered a period of self-management in the mid-1970s which offered certain opportunities to develop democratic elements, similar to that of other European countries. Municipal cultural institutions were created and were completely financed by the 31 individual local communities. While promising in theory, steps towards decentralisation became "suffocated" by bureaucratic incompetence, lack of professionalism and a thicket of regulations. In the 1990s, after the country gained independence from Yugoslavia, the cultural policy once again became politically and administratively centralised. The municipalities lost all the competencies they had gained in the field of culture.
There was no explicit cultural policy document which outlined a specific strategy and / or goals of cultural development, and therefore, one could hardly speak of a consistent cultural policy after 1990. The Constitution and the 1998 Law on Culture provided a certain global orientation toward culture including provisions for civil rights and freedoms, minority rights, the obligation of the government to support and develop culture, etc. However, in practice, there is still a combination of the old and new pragmatism and ad hoc temporary solutions.
As early as 1945, Macedonia has been organised as a multicultural country. The Ministry of Culture financed the activities of institutions such as the Theatre of Nationalities (Turkish and Albanian Drama, established in 1947), as well as several cultural associations (amateur and professional), vocal and dance folk groups, etc. Daily newspapers and weekly magazines, monthly children's magazines and radio and TV programmes were available in the respective languages of different cultural communities. Writers, artists, actors, musicians etc. of all nationalities (Albanians, Turks, Serbs, Romans etc.) were members of the same professional associations together with the Macedonians.
After 1990, the once "homogeneous" society started to slowly disintegrate. The process of democratisation has encouraged the emergence of different views and perspectives, also with regard to the culture of minority communities. It has also helped to point out mistakes made in the past. For example, many private publishing companies were established (over 80% of them Albanian) in a very short period of time after 1990 in order to compensate for the lack of books in the languages of different minority groups. Numerous private radio and TV stations were opened and started to broadcast programmes in minority languages (most of them Albanian and Roma). Several new festivals were established to promote the culture of minority groups. Several new associations and NGOs started to work etc. The Ministry of Culture financially supported most of these activities (except radio and TV).
On the other hand, this approach led to almost complete cultural separation along ethnic lines such as the creation of a foundation for the Association of Albanian Publishers and Association of Albanian Writers. Demands were also made to split up the Theatre of Nationalities into an Albanian Theatre and Turkish Theatre etc.
The ethnic conflict in 2001 (re-)opened certain multicultural questions and the treatment of minority rights (primarily of the Albanian ethnic population) in the field of culture. Following the conflict and the institution of the Ohrid Framework Agreement, the Constitution was amended with some specific provisions for the different cultural communities (see also chapter 4.2.8). Some experts say that "the Ohrid Framework Agreement is a new vision for a Third Republic, which is to be radically different from the first one established with ASNOM (Antifascist Parliament of the Peoples Liberation of Macedonia) in 1944, and the second one, inaugurated with the Constitution of the Republic of Macedonia". It means specifically that the constitutional amendments from 2001 establish citizenship in the country for all nationalities or ethnic groups living on its territory and adopting its Constitution – the Macedonian people and parts of Albanian, Turkish, Serbian, Roma, and Bosnian people. In this context, some experts say that Macedonian traditions should be kept up and, consequently, the country should become "the pilot-state of 21st century multiculturalism".
The Republic of North Macedonia (MK) became independent on 8 September 1991.The country became a member of the Council of Europe (CoE) in 1995. It is a candidate for accession to the European Union since 2005. On 26 March 2020, the European Council endorsed the decision to open accession negotiations with North Macedonia. The country joined NATO in March 2020.
Last update: September, 2021
Up until the beginning of the 1990s (in the so called “socialistic period”), citizens were both directly and indirectly involved in decision-making on issues considered of local importance including the field of culture. After gaining independence in 1990, the autonomy of municipalities in the field of culture was abolished and the entire competence was transferred to the Ministry of Culture. On July 1, 1991, the Ministry of Culture became responsible for all public cultural institutions, which had been formerly the responsibility of the municipalities. This signified the transition from a completely decentralised system, based on the principles of socialism and self-management, to (at that time) a completely centralised system.
Today, there is a single level of local self-government, consisting of 80 municipalities, including the City of Skopje with 10 municipalities. The City of Skopje is a separate unit of local self-government in which the common needs and interests of citizens are accomplished, which derive from the character of the City of Skopje as the capital of the Republic of Macedonia. The municipalities are legal entities.
The decision-making process is shared between the Ministry of Culture, the government and the parliament. The Ministry of Culture drafts laws and documents for the government, which passes them on to the Parliamentary Committee for Culture for discussion and enactment. The Ministry of Culture appoints directors of national cultural institutions, approves their programme and work, allocates the funds etc.
In 1998, the Law on Culture was adopted, setting a framework for cultural policy decision-making and the financing of cultural activities. It includes principles and activities such as freedom of creative work; introduction of a civil concept in culture; an equal position for all public and private entities in the field of culture; introduction of a decentralised system for culture; financing of the national interest in culture by means of open competition etc.
The Law on Local Self-Government (2002) gave the municipality's greater independence in the field of culture.
While society has been undergoing tremendous changes (privatisation, restructuring of the economy, unemployment above 30%, social differentiation, etc.), the cultural sector had been left untouched until 2003. At this time, the Law on Culture was amended and the National Programme for Culture 2004 - 2008 was adopted by the Parliament. In December 2003, the government passed the Decision on the Network of National Institutions in the Field of Culture, which started the process of decentralisation in the field of culture.
In 2004, the Parliament adopted the Law on Territorial Organisation and the Law on the City of Skopje.
There have been certain changes to the architecture of the system after the Ohrid Framework Agreement (2001). The changes facilitate the participation of minorities in the public administration system and within the cultural policy making processes e.g. via specific councils and working groups at the Ministry of Culture etc. At the beginning of 2003, the Office for Promotion and Advancement of the Cultures of Nationalities was also established at the Ministry of Culture. It provides balanced financial support to cultural projects of all ethnic groups and since 2005 it has begun a gradual implementation of the employment policies stipulated in the Law on Culture.
Last update: September, 2021
The decision-making process in the field of culture is shared between the Ministry of Culture, the government and the parliament. The Ministry of Culture drafts laws and documents for the government, which passes them on to the Parliamentary Committee for Culture for discussion and enactment. The Ministry of Culture appoints directors of national cultural institutions, approves their programmes and work, allocates funds etc.
There hasn’t been any change to the architectural system in the past three decades to facilitate or stimulate wider citizen or sectorial engagement.
Last update: September, 2021
There are no legal regional authorities in North Macedonia.
Last update: September, 2021
After 1990, despite certain laws (Law on Culture, Law on Local Self Government), there was no actual division of jurisdiction between national and local levels of government. The Ministry of Culture was in fact responsible for all the cultural institutions in the country (appointing directors of the institutions, providing funds for salaries, running costs and programmes etc.).
In December 2003, the government passed the Decision on the Network of National Institutions in the Field of Culture. According to this Decision, only 64 (from the previous 115) institutions gained the status of national institutions completely financed by the Ministry of Culture. All other cultural institutions were considered local and should be financed by the local governments (running costs etc.) but, on the other hand, the salaries were still subsidized from the Ministry of Culture. The local institutions can also apply for annual funding from the Ministry of Culture for programmes and specific projects. Since June 2005 this division of jurisdiction has been put into practice.
Municipalities, within the legal framework, independently regulate and perform activities of local importance determined by law and are responsible for their performance. In the field of culture the municipalities are responsible for institutional and financial support to cultural institutions and projects, preservation of the folklore customs, traditional handcrafts and similar cultural heritage, organisation of cultural events, encouraging various specific forms of artistic work etc.
It is important to stress that in 2012 the City of Skopje, for the first, time adopted a Strategy with an Action Plan for the Development of Culture in the City of Skopje for 2012-2015. The document contained several strategic goals (development of plural and democratic model of cultural policy, transparency, expertise and efficiency in cultural actions; cooperation between all cultural actors; educational programmes, development of creative industries etc.), an action plan with a time frame, methodology and procedures etc. Since then the Skopje administration announces a public call for cultural projects of importance for the City of Skopje.
According to the Law on the City of Skopje, the City of Skopje is responsible for:
- institutional and financial support of the cultural institutions and projects of importance for the City of Skopje
- fostering the folklore, tradition, old craftsmanship and similar cultural values
- organising cultural events, encouragement of various specific forms of creativity and
- recognising events and persons of importance for the City of Skopje
The National Strategy for Cultural Development 2018-2022 foresaw rapid decentralisation in the past several years. However, so far nothing has been done in this direction.
Last update: September, 2021
Main non-governmental actors are NGO’s and artists associations, although their influence is very limited, with a narrow scope and very often under evident political patronage.
Still, the NGOs were very active during the last years of the previous government and were supporting the so called “Colorfull Revolution” (along with several political parties). In June 2012, as an opposition to the former government’s cultural policy and its uncritical cultural practices, 14 organisations and NGOs promoted the Association "Core" as a new platform of the independent cultural scene of that time. Throughout its work the Association insisted on transparency by the Ministry of Culture and its annual public competitions, seeking participation of independent cultural representatives in the decision-making process, etc. Since its establishment the "Core" Association represented the essence of the independent cultural scene, constantly promoting the need for democratisation and decentralisation of culture, proving that the independent cultural and artistic scene was one of the vital players, but very underestimated, in Macedonian culture.
However, after the fall of the regime and the establishment of the new democratic coalition government (2017), the “Core” Association and many other pro-government NGO’s started to receive sufficient funds on a yearly basis from the Ministry of Culture and the government itself, thus transforming them into kind of passive and silent state favorites. The latest data shows that 33 NGO’s will receive 19.8 million MKD (325 000 EUR) from the government for their activities in 2021.
Last update: September, 2021
Depending on certain questions of wider interest the Ministry of Culture co-operates with a number of other ministries and government agencies, especially with:
- the Ministry of Finance on the planning and realisation of the cultural budget, the tax and customs policy;
- the Ministry of Foreign Affairs on the co-ordination of international cultural co-operation;
- the Ministry of Environment and Physical Planning on the protection of architectural heritage in the process of urban planning;
- the Ministry of Transport and Communications on the protection of cultural heritage in connection with permits for the construction of buildings;
- the Ministry of Internal Affairs on the prevention of illegal archaeological excavations and illegal trade of cultural goods;
- the Secretariat for European Integration on the co-ordination of activities to harmonise Macedonian and European legislation, and
- the Ministry of Labour and Social Policy on social and retirement policy in the cultural sector, etc.
Last update: September, 2021
As mentioned in chapter 1 and 1.2, until 2003 the cultural system was completely centralized. According to the government’s Decision on the Network of National Institutions in the Field of Culture (2003), a division of jurisdiction was made and 63 of 115 cultural institutions gained the status of local institutions. It meant that local authorities were responsible to provide financing of basic costs (salaries, running costs etc.) of these institutions. However, it was never put into practice since the Ministry of culture continued to finance these local institutions through a mechanism called monthly block-donations. This was usually justified due to the very unstable financial situation in most of the municipalities.
This kind of financial dependence of the cultural institutions is one of the weakest points in the Macedonian cultural system. Combined with other modes of legal interventions (appointing directors of the national institutions, the governing boards etc.), it gives the Ministry of culture almost complete control over the cultural institutions. 2021 saw two further examples of bad practice in appointing directors of cultural centres in Strumica and Tetovo where “political” interest prevailed over professional competence.
The Law on Local Self Government (2002) also re-allocated some responsibilities to the municipalities in the field of culture, such as: development of local interest in culture; institutional and financial support of cultural institutions and projects, preserving folklore, customs, old crafts and similar cultural values; organising cultural events; and encouragement of various specific forms of art. Municipalities also have the right to appoint directors of the local institutions and members of the governing boards.
Last update: September, 2021
Table 20: Cultural institutions financed by public authorities, by domain
| Domain | Cultural institutions (subdomains) | Number (Year) | Trend (++ to --) |
|---|---|---|---|
| Cultural heritage | Cultural heritage sites (recognised) | 17 000 (2003) | ++ |
| Museums (organisations) | 32 (2017) | ++ | |
| Archives (of public authorities) | 9 | / | |
| Visual arts | Public art galleries / exhibition halls | 69 (2017) | ++ |
| Art academies (or universities) | 3 (2017) | / | |
| Performing arts | Symphony orchestras | 3 (2010) | ++ |
| Music schools | NA | NA | |
| Music / theatre academies (or universities) | 2 (2018) | / | |
| Dramatic theatre | 19 (2019) | - | |
| Music theatres, opera houses | 1 (2020) | - | |
| Dance and ballet companies | 1 (2020) | / | |
| Books and Libraries | Libraries Books | 175 (2019) 1 143 (2019) | + ++ |
| Audiovisual | Broadcasting organisations | 105 (2019) | - |
| Interdisciplinary | Socio-cultural centres / cultural houses | 35 (2010) | NA |
Source: State Statistical Office.
Last update: September, 2021
Public cultural institutions are usually founded by the state and very rarely by municipalities. So far there are no changes in the financing of cultural institutions: in general, both types (national and local) institutions are financed by the state (Ministry of Culture).
In the past several years the number of institutions that are managing to apply for funding through various programmes of the European Union (e.g. IPA, Creative Europe, books translation etc.) have increased.
There is also a trend for private-public initiative between public cultural institutions and private ones, especially on the basis of cooperation of public cultural institutions with non-governmental cultural organisations or other actors from civil society on certain projects.
Except for the National Strategy for Cultural Development 2018-2022, there are no other official strategies concerning the public cultural institutions. As a matter of fact, even those formulated in the National Strategy (rapid decentralisation, reforms and depoliticisation in the cultural institutions, their revitalisation etc.) are completely left aside in the current trends in Macedonian culture.
Last update: September, 2021
The Ministry of Culture (in cooperation with the Ministry of Foreign Affairs) is the main body responsible for international, bilateral and multilateral cultural co-operation, which is realised through international conventions, other international agreements, bilateral agreements and programmes for co-operation. Bilateral cultural co-operation agreements include educational and scientific programmes as part of framework agreements that are signed for 1-3 years. Therefore, these agreements are the major instrument in international cooperation. Other instruments such as cooperation treaties, co-production agreements or state guarantees are also in use. So far, the Ministry of Culture has signed bilateral agreements for cultural cooperation with over 50 countries.
On the other hand, local authorities are also independent in planning and effectuating international cultural cooperation. At the same time, a significant part of international cultural co-operation is realised through direct co-operation between institutions and individuals and is frequently endorsed and financed by the Ministry of Culture.
The financial support for international cultural co-operation varies each year, depending on the annual budget of the Ministry of Culture and the programmed activities. However, the usual estimation is 2-3% of the annual budget of the Ministry for the programmes and activities in the field of international cultural co-operation.
In 2006 the government announced the idea of appointing recognised artists, writers, and musicians etc., as cultural ambassadors abroad. Following this Decision, 10 cultural ambassadors were appointed during the previous government. They did not have full diplomatic status. However, due to lack of actual results and verified benefits, the Ministry of Culture cancelled this practice in 2017.
North Macedonia has been a member of UNESCO since 28 June 1993. It ratified various conventions including the Convention on the Protection and Promotion of the Diversity of Cultural Expressions (2007) and the Convention for the Safeguarding of the Intangible Cultural Heritage (2006). Between 2016 and 2017, UNESCO’s Participation Programme approved 5 projects that MK participated in, including 1 regional project. Lake Ohrid region is a World Heritage Site since 1979. Bitola became a UNESCO Creative City of Film in 2015 (part of UNESCO Creative Cities Network). The country is included in the UNESCO/EU action to Fight Illicit Trafficking of Cultural Property.
Last update: September, 2021
The Ministry of Foreign Affairs is responsible for implementing and monitoring all the international (bilateral or multilateral) agreements and conventions. The Ministry of Culture (with UNESCO National Commission) and the Ministry of Foreign Affairs, depending on the field of interest, are responsible for implementing and monitoring the conventions in the field of culture, such as the UNESCO Convention on the Protection and Promotion of the Diversity of Cultural Expressions. The Convention was ratified on May 22, 2007. In the past several years UNESCO has supported 15 projects in the fields of culture, education, science etc., and 8 grants for young researchers, professionals in the protection of cultural heritage etc.
Since January 2008, North Macedonia (as a candidate for full EU membership) has access to European Union funds for culture. A Culture Contact Point was established (as part of the Ministry's Department for EU Integration), to inform and advise Macedonian institutions on accessing these funds.
The European Union (EU) has allocated EUR 57.7 million for North Macedonia to participate in 12 EU programmes so far, including Erasmus+, Creative Europe, the programme for the Competitiveness of Enterprises and Small and Medium-sized Enterprises (COSME), Horizon 2020, Customs 2020, Fiscalis 2020 and Europe for Citizens. North Macedonia is trying to make the most of EU funding to support its CCS: its cultural operators have been involved in 79 Creative Europe projects between 2014 and 2020 (as project coordinator for 45 of these projects).
Through the EU’s Instrument for Pre-accession Assistance (IPA), DG NEAR of the European Commission is funding the Creative Europe Culture Sub-programme – Western Balkans Cooperation Projects. The programme is managed by DG EAC with a total budget estimated at EUR 5 million. Selection results on the first call were announced on 30 July 2020. The 13 winning applications include 12 cultural organisations from North Macedonia (out of a total of 77 beneficiary organisations).
In 2018, the Centre for Cultural Cooperation of the “Initiative 16+1” was open for cultural cooperation with 16 South-East European countries and PR China.
In 2018, the Minister of Culture signed the Davos Declaration 2018 “Towards a high-quality Baucultur for Europe”.
There are Macedonian cultural centres in Sofia (Bulgaria), New York (USA), Istanbul (Turkey) and Tirana (Albania) that play a certain role in international cooperation.
There are no exact strict government programmes to support trans-national intercultural dialogue, but certain programmes are channelled via the Ministry of Culture or intergovernmental organisations. The Ministry of Culture supports specific trans-national activities for young people or youth groups, through funds available for travel grants, language or cross-cultural training courses.
The Treaty for good neighbourly relations (2017) with Bulgaria and the Final Agreement for the Settlement of the Name Issue (2018) with Greece are a serious step towards international cultural dialogue and co-operation.
The Final Agreement for Settlement of the Name Issue in article 14.8 points out that “The Parties shall support the broadening of tourist exchanges, and the development of their cooperation in the fields of alternative tourism, including cultural, religious, educational, medical, and athletic tourism and shall cooperate in improving and promoting business and tourist travel between them”.
Last update: September, 2021
Direct professional cooperation of the cultural institutions is also mostly financed by the Ministry of Culture and it represents the main international co-operation in recent years. Through the Annual competition for financing the national interest in culture, the Ministry of Culture supports international projects of national and local institutions, NGO's, associations and artists in promoting cultural cooperation with European countries and other parts of the world.
In the past decade there was a notable trend for a lot of cultural NGOs as well as professional associations of artists and cultural workers to establish international connections and to participate in numerous international projects and different types of professional cooperation. Almost all professional associations of artists and cultural workers are members of international professional organisations and/or international cultural networks. The interest of cultural operators and artists in participating in various international networks continues to be ever growing and more visible.