The Future of
Cultural Devolution
in the UK

Findings and recommendations from a major four nations research and open policy development programme

Picture a renewed United Kingdom based on better relationships between governments, communities, and the public, and where culture, creativity and heritage are restored to their rightful place at the very heart of our local, regional and national life.

Like the movement of the earth’s tectonic plates, devolution can be incremental and go unnoticed. But every now and then, these plates shift at breakneck speed and the landscape is changed forever.

The ‘devolution revolution’ is ramping up at pace. The impacts are likely to be felt across the country and have far-reaching consequences for a great many policy areas – including for the creative, cultural and heritage sectors.

Culture Commons and 30 partners have run a yearlong programme with stakeholders from across the creative, cultural and heritage ecosystem here in the UK. Together, we’ve been holding a space for a national dialogue about devolution and increased local decision making.

We wanted this to be a truly open and transparent programme that could bring all parts of our ecosystem together. That’s why we’ve been publishing all of our outputs as the programme has progressed and have committed to making all the insights open access.

We’re delighted to have been joined by a diversity of people, places, practitioners, sector bodies, funders, research institutions and decision makers. Collectively, our place partners serve nearly 8 million people and our sector partners have an extensive collective reach into parts of the ecosystem we simply could not reach alone.

We’ve now amassed a significant body of new evidence that has helped us to design a suite of new policy recommendations. We think these measures are sensible – proportionate to the obvious challenges of our time – but nonetheless seize the opportunity that full-throated commitments to further devolution provide us with.

There is little doubt that the UK needs to ‘decentralise’ and move decision making closer to communities. However, unfettered devolution is a sure-fire road to system collapse, which could entrench the very structural issues we’re trying to address.

Our evidence makes clear that we will need to depart from the status quo and apply some radical new thinking if we are to finally move the dial on the entrenched inequalities that characterise too many parts the country. But we’ll also need to work with existing infrastructures to ensure we have some sense of stability as we go through a period of considerable change.

This digital report brings together the findings and policy thinking in one place to make easier for a range of stakeholders to engage with them. As you move through it, we invite you to think about how the findings and recommendations might be useful in your own personal and professional contexts, and consider working with us to extrapolate them as part of the next phase of the programme.

Most of all, we hope this work marks the beginning of a much wider and ongoing debate about how the UK’s creative, cultural and heritage ecosystem can both support, and benefit from, an increasingly devolved policy landscape.

In 2023, Culture Commons set out to run a small policy project that would help us begin to get a sense of how devolution might play out in the coming years.

We wanted to know how the creative, cultural and heritage ecosystem (“the ecosystem”) had featured in the story of devolution so far. We also wanted to see if we could get ahead of some of the risks and opportunities that further devolution is likely to bring about.

As we began to tour the country talking to potential partners, something extraordinary happened. 

It quickly became apparent that the level of interest from stakeholders within the ecosystem was unlike anything we’d seen before. What’s more, that interest was observable in all corners of the UK and in all parts of the ecosystem.

We quickly set about building a bespoke open policy development programme that could hold a space for the diversity of voices that wanted to contribute.

The final partnership of 30 brings a broad range of perspectives and objectives to the table. 

Number of citizens represented by our Place Partners

North East Combined Authority

Belfast City Council

Cardiff Council

Cambridgeshire & Peterborough

Durham County Council

Greater Manchester Combined Authority

Harlow District Council

Sheffield City Council via Sheffield Culture Collective

Wigan Council

South Yorkshire Combined Authority

Place Partners

District Council

Population:
348,005

Size:
132 km2

GDP per head at current market prices, pounds:
£49,821

Combined authority made up of 7 Local Authorities.

Population:
896,800

Size:
3,400 km2

GDP per head at current market prices, pounds:
£38,001

Constituent Local Authorities:
2 upper tier local authorities: Cambridgeshire County Council, Peterborough City Council 5 District Councils: Cambridge City, East Cambridgeshire, South Cambridgeshire, Fenland, Huntingdonshire.

Combined authority made up of 7 Local Authorities.

Population:
383, 536

Size:
141 km2

GDP per head at current market prices, pounds:
£40,950

Unitary authority

Population:
532,200

Size:
2,230 km2

GDP per head at current market prices, pounds:
£23,169

Combined authority made up of 10 Local Authorities

Population:
2,948,633

Size:
1,277 km2

GDP per head at current market prices, pounds:
£34,246

Constituent Local Authorities:
Bolton, Bury, Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford and Wigan

Combined authority made up of 7 Local Authorities

Population:
2,012,449

Size:
7,786 km2

GDP per head at current market prices, pounds:
£24,585

Constituent Local Authorities:
County Durham, Gateshead, Newcastle, North Tyneside, Northumberland, South Tyneside and Sunderland

District council

Population:
96,040

Size:
30.54 km2

GDP per head at current market prices, pounds:
£29,079

Cultural Compact (metropolitan district based on Sheffied City Council juristiction)

Population:
573,252

Size:
368 km2

GDP per head at current market prices, pounds:
£30,896

Combined authority made up of 4 Local Authorities

Population:
1,407,072

Size:
3,484 km2

GDP per head at current market prices, pounds:
£26,485

Constituent Local Authorities:
Sheffield, Rotherham, Doncaster and Barnsley

Metropolitan borough council

Population:
339,174

Size:
200 km2

GDP per head at current market prices, pounds:
£21,487

Sector Partners

Covering: Wales

Covering: District council

Covering: Scotland

Covering: UK (and international)

Covering: England

Covering: England, Wales and Northern Ireland

University of Leeds

Centre for Cultural Value

University of Dundee

University of Kent

University of Warwick

Research Partners

Based in Leeds, England with UK reach

Based in Dundee, Scotland with UK reach

Based in Kent, England with UK reach

Based in Leeds, England with UK reach

Based in Warwick, England with UK reach

Observer Partners

Covering: England

Covering: England

Covering: England and Wales

Early scoping by the partners saw the emergence of a headline policy challenge: unknown devolution policies are likely to be deployed at pace into an inequitable and unevenly distributed creative, cultural and heritage ecosystem.

As we will explore in more detail, the UK’s creative, cultural and heritage ecosystem is characterised by a series of disparities that manifest in a variety of ways in different parts of the country. These disparities are long-standing and complex in nature.

Inspired by the new UK Government’s mission-driven approach, we flipped our challenge into a high-level mission. This has helped us to stay focussed on systemic and knottier policy questions and identify areas of common cause across a large coalition.

Our Mission

To harness the 'devolution revolution' to tackle socio-economic and geographical injustice associated with the creative, cultural and heritage ecosystem to unleash its full potential in all parts of the UK.

This mission dovetails nicely with two of the UK Government’s own national missions, in particular: securing the highest sustained growth in the G7 and breaking down barriers to opportunity at every stage

This is because the creative, cultural and heritage ecosystem is, when support appropriately, well placed to generate both economic and social outcomes – a theme we will return to throughout this digital report.

Together, the partners resolved to:

  • Identify and articulate the challenges and opportunities that more decision making powers and responsibilities for local and regional government might present to the creative, cultural and heritage life of different places across the UK. 
  • Arrive at a new shared language to better articulate how the creative, cultural and heritage ecosystem interacts with, and can support, local place-based development and policy priorities in an increasingly devolved policy landscape.  
  • Co-design a suite of evidence-informed policy positions that could help deliver a more equitable and sustainable flourishing of creative, cultural and heritage ecosystem in all parts of the UK. 

This Report

This report is structured into five sections.

We define some of our key working terms and outline a rationale for the programme with a focus on how our ecosystem has factored into devolution policy so far. 

We describe the shape of the open policy development programme, capturing the breadth of the engagement with ecosystem stakeholders. 

We share some of the findings we have amassed along the way. 

We set out a series of new principles and recommendations directed at different tiers of government and parts of the ecosystem. 

We lay out a series of spin-out projects that we are working on that will see the recommendations extrapolated into immediate action. 

We bring together the creative, cultural and heritage sectors, the research community and policymakers together to co-design new policy and influence decision makers at the local, regional and national levels. 

We work on projects shaped around the needs of our clients and partners, as well as run large-scale open policy development programmes that seek to take on some of the biggest policy challenges of times.

We work with governments, sector representative organisations, workforce representative bodies, grant giving institutions and the research community.  

Our team is made up of policy professionals, former political advisors and civil servants who have worked in local, national and international governments and parliaments, as well as in the creative and cultural sectors. 

We’ve been having tangible impacts across a range of policy areas, including: 

  • Securing uplifts in central government funding for flagship cultural institutions 
  • Building new policy infrastructures for strategic bodies and sector support organisations 
  • Informing policy by bringing cutting edge research to the attention of UK, devolved and local government decision makers 
  • Building coalitions on national open policy development programmes examining the most pressing policy questions of the day
  • Advising elected people and their teams on the design and delivery of cultural policy in their areas 
  • Leading impactful campaigns for change for grassroots organisations and the creative workforce 
  • Providing analysis on legislation and parliamentary business related to the creative, cultural and heritage sectors 

We are delighted to be supported with grant funding by the Arts Council England, Paul Hamlyn Foundation and the Calouste Gulbenkian Foundation (UK Branch). 

You can find out more about us at www.culturecommons.uk 

Culture Commons project team


Trevor MacFarlane FRSA 
Director

Alanna Reid 
Policy & Programme Manager 

Dr Lucrezia Gigante 
Postdoctoral Research Associate (Feb 2024 – Nov 2024) 

Morwenna Fuge 
Communications & Events Manager (Mar 2024 – Nov 2024) 

Dr Claire Burnill-Maier 
Postdoctoral Research Associate (Feb 2024 – Jun 2024) 

Helen Haslam 
Executive Assistant 

As a programme built on a partnership model and with the intention of engaging as widely as possible across the creative, cultural and heritage ecosystem, we have an extensive number of individuals and organisations from all four UK nations and beyond to thank.

We’re particularly grateful to all those who engaged with us during the research and insight gathering phases of the programme. It is the time, lived experiences and expertise that they so generously shared with us that has made it possible to design the policy in this report. 

As an open policy development programme, Culture Commons and our partners are sharing all our findings and outcomes as we go. To this end, we have published a series of Research Papers, Insight Papers and other materials on a dedicated digital hub which can be accessed freely by anyone.

This digital report and all the outputs that appear on the dedicated digital hub mentioned above are published under a Creative Commons ‘Attribution-NoneCommericila-ShareAlike 4.0 International’ licence. This means that anyone can share and adapt the content as long as: 

  • appropriate credit is given to the author(s) 
  • a link to the material is included in the citation 
  • all changes to the original material are indicated 

In addition, the original content may not be used for commercial purposes – this in-keeping with the not-for-profit nature of the open policy development programme.  

Lastly any remix, transformation or materials built on the original material that is developed must be distributed under the same license as the original.  

You can read the full license terms and conditions in more detail here. 

To cite this material, please use: 

The Future of Cultural Devolution in the UK, Culture Commons, 2024

If you have any questions or thoughts about this paper, we’d be delighted to hear from you; please email contact@culturecommons.uk and a member of the Culture Commons team will be back in touch with you. 

Over the course of the year, we have engaged with an extensive number of people and organisations operating in very different contexts. Everyone has a different working definition of what constitutes ‘culture’, ‘creativity’ and ‘heritage’ or what they might understand to be the ‘infrastructures’ associated with them. Indeed, we seek to address some of these challenges in our policy recommendations. 

We have applied a broad and inclusive definition to the creative, cultural and heritage ecosystem to ensure that a wider readership can engage with the ideas coming out of the work so far. We make particular reference to subsectors where we fee this will add value – for example, when drawing out specific insights from stakeholders who contributed to the research and insight gathering phase.

We unpack some of our core terms in the section entitled ‘The Programme’.