Select Committee on Culture, Media and Sport First Report


1  Introduction

Inquiry

1. The previous Committee inquired into cultural property — return and illicit trade — in 2000.[1] Prompted by the situation in Iraq and reports of the looting of the National Museum in Baghdad, we decided to examine whether any progress had been made by the Government in implementing the undertakings it made in response to our predecessor's findings. We invited written evidence on 1 July 2003.[2]

2. We took evidence from the Secretary of State for Culture, Media and Sport on 8 July 2003 in an initial scoping exercise. We were assisted in our inquiry by an informal meeting with officers from the Art and Antiques Unit of the Metropolitan Police Service (MPS) in October. We then took formal oral evidence from: the Natural History Museum; the Museums Association; the Art Loss Register, Trace (Invaluable Group) and Salvo (three private sector theft alert databases); the British Art Market Federation (BAMF); Professor Norman Palmer (Chairman of the Illicit Trade Advisory Panel (ITAP) and of the Working Group on Human Remains (HRWG), and a member of the Spoliation Panel); HM Customs and Excise; and the Home Office. The Secretary of State for Culture, Media and Sport made a further appearance before us at the end of the inquiry.[3]

Background: previous Report — July 2000

ILLICIT TRADE

3. The previous Committee concluded that the illicit trade in cultural objects was damaging world heritage by providing encouragement for the theft and otherwise illicit removal of important artefacts from private owners, museums and archaeological sites around the world. In addition the existence of an illicit market, however difficult to quantify, was damaging to the reputation and interests of the British art market, a sector of substantial economic activity in the UK worth nearly £5 billion, employing over 37,000 people and representing 25% of global sales. The previous Committee's evidence was that the illicit trade in cultural objects was linked to organized crime in facilitating illegal arms and drugs deals as well as the laundering and transfer of criminal funds.[4]

4. The previous Committee's key recommendations were for:

a)  UK accession to the UNIDROIT Convention[5] (in preference to the UNESCO instrument);[6]

b)  Home Office commitment to the establishment of an accessible and internationally compatible database of stolen and illegally removed cultural objects, developed in cooperation with all stakeholders, including the commercial sector;

c)  establishment of a criminal offence of trading in cultural property stolen, illicitly excavated or illegally exported from overseas; and

d)  the avoidance, by museums, of acquisitions without secure provenance.[7]

RETURN

5. The previous Committee subscribed to the concept of the world's museums keeping global collections but, on the other hand, saw no evidence of a flood of claims threatening that concept. The Committee noted the seemingly absolute statutory prohibition on return (or "de-accession") of objects from national collections. Overall, the Committee recommended parliamentary sanction for specific cases rather then general powers for institutions' trustees.[8] However, our predecessors identified two categories where special considerations applied and where the case for permissive legislative change was persuasive: human remains and spoliation (objects looted by the Nazis between 1933 and 1945).[9]

Human remains

6. The Committee concluded there was a need for new principles and guidelines on the care of human remains, and for handling requests for return. The Committee also recommended consultation on, and "early introduction" of, legislation to permit the trustees of national museums to return human remains currently held in their collections in response to valid claims.[10]

Spoliation

7. The Committee recommended urgent consultation with relevant parties by the DCMS with a view to "early and expedited legislation" to allow museums to return objects when recommended to do so by the Spoliation Panel. Our predecessors concluded it would be absurd for a return to be sought but prevented by the "dilatoriness of Ministers".[11]

The response from the Government

8. The Government undertook various initiatives and commitments during the previous inquiry and following publication of the 2000 Report. The Government established the Illicit Trade Advisory Panel (ITAP) on 8 May 2000 with a remit to advise on measures to combat the illicit trade in cultural objects. The then Arts Minister, Mr Alan Howarth MP, had indicated to the Committee (during evidence) that he was willing to look again at the question of accession to the relevant UNESCO Convention, which had been ruled out in the Department's memorandum.[12] On human remains, Mr Howarth also committed the Government to looking "sympathetically and constructively" at easing the law to allow museum trustees to "make amends" and return human remains.[13] The Spoliation Advisory Panel was agreed in principle in November 1999 and had its first meeting on 8 June 2000. The Committee noted concern that national museums remained unable to restore objects even if they wanted to.

THE GOVERNMENT'S FORMAL REPLIES

9. In October 2000 the Government submitted its initial reply to the Report of 2000. It deferred a substantive response to recommendations on tackling the illicit trade in cultural objects until its new advisory body, ITAP, had reported.

10. The Government, however, agreed that there might be a case for legislation to permit disposals from within the collections of national museums and galleries in specific and defined circumstances. The Government reported initiating consultations on these issues for both human remains and spoliation.[14]

11. In March 2001 the Government submitted a further reply to the Committee.

Illicit trade

12. On illicit trade, the Government:

a)  reported the broad agreement of ITAP with the previous Committee's recommendations, accepted the recommendation for a database and reported that the Home Office had set up a working party in January to study these matters "urgently";

b)  deferred an answer on UK accession to UNIDROIT or UNESCO conventions (with ITAP preferring the latter) until after further consideration;

c)  said it was considering the question of a new criminal offence; and

d)  reported that ITAP would remain in existence to review progress and implementation of agreed initiatives.[15]

Human remains

13. On human remains the Government's reply recorded the establishment of a working group on human remains. Its remit was to:

a)  examine the legal status of human remains in publicly funded museums and galleries; their powers to release human remains from their collections; and the desirability and possible form of legislative change;

b)  consider the circumstances in which material associated with human remains might properly be included within any such change; and

c)  consider the drawing up of a statement of principles (and supporting guidance) on the care of human remains and on handling claims.

There was reference to the working group starting the process required to enable a Regulatory Reform Order to go forward which would tackle the blanket prohibition on the return of human remains by national museums and galleries.[16]

Spoliation

14. With regard to spoliation, the Government reported that, in relation to cases of alleged wrongful taking during the period 1933 to 1945, the National Museums Directors Conference, the Museums Association, the Museums Standing Group on Repatriation, the Tate Gallery and Resource: The Council for Museums, Archives and Libraries had been consulted. The reply stated that as a result "There has been general agreement from those consulted that the removal of legislative barriers to restitution should be sought. The Government has begun cross-party discussions about the possibility of permitting the Trustees or Boards of National Museums and Galleries to be able, where appropriate, to return items which were wrongfully taken during the period 1933 to 1945." The Government referred to the possibility of achieving this change again by means of a Regulatory Reform Order (under the relevant Bill which was going through Parliament at that time).[17]


1   Seventh Report, Session 1999-2000, Cultural Property: Return and Illicit Trade, HC 371 (hereafter the 'Previous Report') Back

2   Culture, Media and Sport Committee press release No. 29, Session 2002-03, dated 1 July 2003 Back

3   All evidence, oral and written, is set out at the back of this volume. Back

4   Previous Report, paragraph 10 Back

5   UNIDROIT (International Institute for the Unification of Private Law) Convention on Stolen or Illegally Exported Cultural Objects Back

6   UNESCO Convention (1970) on the means of prohibiting and preventing the illicit import, export and transfer of ownership of cultural property. Back

7   Previous Report, p. li Back

8   Previous Report, paragraphs 129 and 142 Back

9   Previous Report, paragraphs 153 and 193 Back

10   Previous Report, paragraph 166 Back

11   Previous Report, paragraph 193 Back

12   Previous Report, Session 1999-2000, HC 371-ii, QQ 681 and 682 Back

13   Previous Report, paragraph 166 Back

14   Fourth Special Report, Session 1999-2000, HC 944, paragraph 3 Back

15   Second Special Report, Session 2000-01, HC 316, paragraphs 8, 11, 13 and 14 Back

16   Second Special Report, Session 2000-01, HC 316, paragraph 17 Back

17   Second Special Report, Session 2000-01, HC 316, paragraph 19 Back


 
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Prepared 16 December 2003