This study of precarious work and social security in South Africa’s CCI seeks to provide information and data that can be used in by officials drafting policy recommendations.
The exploratory research report on Precarious Work and Social Security in South Africa traverses a good deal of ground given its modest brief. It does point, however, to the need for extensive subsequent research and concomitant policy design. The various chapters of the report include a desktop analysis in regard to the literature review, the international and comparative policy context, and a discussion of select and strategic issues in respect of a consideration of the relevant South African policy context. Empirical evidence was gathered from a number of strategic interviews as a well as a focus group session. A modest online survey was added to the research, and this returned useful findings and results. Furthermore, a conceptual modelling exercise related to the feasibility and logistics of a potential social security intervention by government was conducted. These specific and triangulated sources of information have informed the drafting policy recommendations. These are not exhaustive with the emphasis rather on practical and implementable suggested measures.
This study is divided into several chapters. The introductory section provides an overview of the issues, the nature and scope of the research undertaken, and a short summary of the composite chapters. Chapter one provides an international literature review of select and strategic issues in regard to the intensification of precarity in the CC sector, the dynamics and contradictions thereof, and attempts by unions and alternative associational structures to respond to these long-standing and new conditions of work for artists and cultural workers and practitioners. The rather modest body of South African scholarship on the subject matter is also discussed.
Chapter 2 provides a compact discussion of this report's methodology and research methods. A mixed method approach is utilized which in this instance includes secondary data (desktop) research, quantitative economic modelling, and quantitative and qualitative fieldwork. A relatively extensive literature and policy review covers international trends and best practice; and provides analysis and insights in regard to South Africa’s experiences of precarity and efforts to ameliorate these. The quantitative work includes the online survey and economic modelling. The qualitative aspects include strategic interviews and a focus group session.
The discussion in Chapter 3 of the international and policy context and developments, including certain best practices cases, has also a literature review component in respect of the question of the status of the artist, and efforts to secure this by improving the working conditions of artists and cultural workers and developing and/or reasserting relevant social security measures.
Chapter 4 provides an overview of the policy context, and strategic developments and issues in South Africa. It considers the major economic trends, the impact of deindustrialization on the economy and society of the country including the constraints on the development of the creative economy. Recent DSAC policy and joint policy productions most particularly the Revised White Paper on Arts, Culture and Heritage, and the CCI Masterplan (a collaboration with the Department of Trade, Industry and Competition) are examined with particular emphasis in regard to their provisions to improve working conditions for artists and cultural practitioners and proposals for social security measures in the CC sector. The fragmented terrain in the CC sector for union and associational activities is also examined, and institutional initiatives noted.
Chapter 5 assesses 7 in-depth interviews with 18 selected stakeholders and one focus interview held with three representatives of DSAC. The interviews then focused on five themes: (i) Context of precarious and atypical labour in the cultural and creative sector; (ii) Artists’ rights, business, associations and unionisation; (iii) Social security for artists and creative practitioners; (iv) government’s role in provision of social security in CCI sectors; and (v) general observations and suggestions. Chapter 6 analyses the data generate from the online survey. To get as much information from creatives themselves, a survey was sent to the SACO database of creatives consisting of 900 individuals or creative enterprises. To ensure wider coverage certain DSAC officials were requested to respond. Chapter 7 models the salaries of the various skills levels of cultural workers and practitioners including in the informal sector. It draws on the specific methodology invoked to estimate the CCI Cultural Satellite Account. The UNESCO Framework for Cultural Statistics (UNESCO 2009) has been used as the touchstone to align the national data for international comparison. While the UNESCO Framework allows for six cultural and two related domains, only the six CCI domains are estimated for the purposes of this report.
Chapter 8 provides a set of policy recommendations based on the preceding research and the triangulation thereof. The bulk of these recommendations are practical in nature can be implemented in the shorter term. The concluding chapter rounds of the report, notes again the key findings and significance thereof, and anticipates future interventions in regard to precarity and social security in the CC sector in South Africa.
There are nine recommendations which provide a starting point for the Department of Sports, Arts and Culture in regard to addressing the related concerns of increased precarity and the need for a speedy response to the question of providing with due urgency social security underpinnings to the CC sector.
1. As a matter of urgency DSAC should look to engage directly with UNESCO and with the current UNESCO survey regarding the continued implementation of the 1980 Recommendation on the Status of the Artist.
2. DSAC should consider an exploratory meeting or colloquium between its BRICS partners either on a bilateral or collective basis on the postCovid19 interventions in regard to social security issues and schemes that are being considered, partly as a response to the depth of the socioeconomic crisis in the creative and cultural sector in these countries.
3. DSAC should proceed rapidly in establishing a compact/small inter-government strategic reference task team comprising the appropriate specialised persons from relevant departments and associated state agencies. This team should include representatives from the Departments of Labour; Social Welfare; Trade, Industry and Competition (DTIC); and possibly a nominated representative of NEDLAC. It would seem advisable to include the key agencies of the Ministry of Finance, namely the national Treasury; and the South African Revenue Service (SARS) to be inclusion. Furthermore, consideration should be given to the inclusion of StatsSA to ensure that relevant national data for the requisite economic modelling exercises is available.
4. Establish a registry artists and cultural practitioners. In addition, the creation and effective use of a CCI database of creative industries (including micro firms) would seem to be a popular acceptable action step.
5. Create a large-scale digital platform in collaboration with the private sector for use by CCI firms and creatives that can be used to build positive relationships and the articulation of social and cultural capital in the CC sector.
6. The emphasis placed by UNESCO and the ILO on the importance of a country ensuring that the providing exemplary training, education and nurturing for its artists has been overlooked somewhat in a number of developing and even certain developed economies. In the South African context, the relative lack of design and articulation of a kind of training and ecosystem for artists and cultural workers is an area requiring policy research and related policy design. The recently approved Revised White Paper for Arts, Culture and Heritage, and the 2021 Masterplan for Cultural and Creative Industries also provide related policy suggestions on this matter.
7. There is a need to consider the various options to enhance the freedom of association in the CC sector in regard to collective bargaining, and the conceptualization of new forms of unions and unionization as per current international developments. A discussion with interested parties and stakeholders would be useful. The researchers would help in establishing a list of potential invitees.
8. There are a number of potential shorter-term options for government in terms of legislation and associated support measures. Firstly, the 2017 Revised White Paper (fourth edition) has been recently passed by government. It has a section which directly addresses the status of artists and cultural workers, and the question of social security. It also specifies existing understandings confirmed during the consultative and drafting processes, most particularly the cooperation with the Department of Labour (DOL). It is important that steps be taken to operationalise policy recommendations of the long awaited RWP. Secondly, consideration should be given to development of a pro forma contract for gig and self-employed workers in the cultural and creative economy in South Africa. In the third place a practical step would be to investigate the establishment of a dedicated unemployment insurance fund for creatives.
9. As evidenced by international cases and developments, the private sector, and particularly the financial institutions, are crucial players in the design, delivery and participation in social security measures and certain efforts to ameliorate precarity in the CC sector. DSAC should formalize a dialogue with key private sector representatives, most especially the major financial institutions to consider social security measures and to seek quick wins such as access to finance by contract CC workers and practitioners on matters such as mortgages and loans. Select state agencies may be added to this institutionalized dialogue. The structuring of a PPP arrangement on this particular matter with Treasury participation should be considered.
Discussion and action steps in regard to these policy proposals, and accompanying research, may lead to the consideration of further related and viable policy options.
