Acknowledgements

Ehara taku toa i te toa takitahi, engari he toa takitini.
My success is not that of an individual, but that of the collective.

This work has been developed in collaboration with Manatū Taonga Ministry for Culture and Heritage’s Crown-funded cultural entities. We are especially grateful for the ongoing advice and support from our project partners participating in the Te Kāpehu working groups:

• The Arts Council of New Zealand Toi Aotearoa (Creative NZ)
• Heritage New Zealand Pouhere Taonga
• Ngā Taonga Sound & Vision
• NZ On Air Irirangi Te Motu
• New Zealand Film Commission Te Tumu Whakaata Taonga
• New Zealand Music Commission Te Reo Reka o Aotearoa
• Royal New Zealand Ballet
• Sport New Zealand Ihi Aotearoa
• Te Matatini Society Incorporated
• Museum of New Zealand Te Papa Tongarewa.

Manatū Taonga also appreciates the ongoing feedback and engagement of other government and sector stakeholders, including Department of Internal Affairs Te Tari Taiwhenua, Auckland Council Te Kaunihera o Tāmaki Makarau, the Auckland Investors Forum, Creative Waikato Toi Waikato, Regional Arts Network Aotearoa, Te Taumata Toi-a- Iwi, and WeCreate.

Foreword

It is with great pride that we present Te Kāpehu – The Compass, a cultural system evidence framework that marks a significant step forward in how we understand, measure, and support the cultural life of Aotearoa New Zealand.

This framework is the result of collaborative effort, developed in partnership with our Crown-funded cultural agencies. We extend our thanks to all those who contributed to the development of Te Kāpehu, particularly the members of the Cultural Agency Working Group and He Rōpū Āwhina, whose insights and guidance have been instrumental in ensuring the framework is both robust and reflective of our unique cultural context.

Te Kāpehu provides us with a shared language and structure to navigate the complex and dynamic cultural system. It enables us to track the health and value of the system over time, identify gaps in our knowledge, and generate insights that can inform policy, investment, and practice. Importantly, it recognises the role of te ao Māori in Aotearoa New Zealand and the need for culturally grounded approaches to data and evidence.

The potential benefits of Te Kāpehu are far-reaching. By building a more coherent and accessible evidence base, the Ministry can, as steward of the cultural system, better demonstrate the impact of arts, culture, and heritage on wellbeing, identity, and economic resilience. We can also support more effective decision-making across the system, from grassroots initiatives to national strategies.

As a living framework, Te Kāpehu will continue to evolve. We are committed to working alongside our partners to refine and expand its use, ensuring it remains fit-for-purpose and responsive to the needs of the sector and the communities we serve.

We look forward to the journey ahead and to the many insights and opportunities that Te Kāpehu will help us uncover.

Ngā manaakitanga

Leauanae Laulu Mac Leauanae
Tumu Whakarae
Secretary for Culture and Heritage and Chief Executive

Overview

Te Kāpehu – The Compass (‘Te Kāpehu’) is a framework to guide how we navigate data and evidence about the cultural system in Aotearoa New Zealand. It provides a means to track the health and value of the cultural system over time,  and offers a shared language to describe impact and understand performance. Te Kāpehu aims to facilitate the generation of insights, using both quantitative and qualitative evidence, to support effective policy making and investment decisions that drive positive change for all New Zealanders and their communities. 

The name of the framework, chosen in partnership with Manatū Taonga Ministry for Culture and Heritage’s funded cultural agencies, highlights our collective aim for Te Kāpehu to provide a sense of direction and insights leadership into the future, supporting Manatū Taonga as the steward of the cultural system. For the purposes of Te Kāpehu, the ‘cultural system’ refers to the diverse cultural and creative sectors, industries and producers that contribute to cultural activity within New Zealand.

Why we need an evidence framework

In New Zealand, our cultural system provides wide-ranging benefits to society. As a steward and the Government’s chief adviser on the cultural system, it is important that Manatū Taonga develops an improved understanding of that system, including the value it provides for New Zealanders and how the system performs over time.

According to sector stakeholders, a key opportunity for Manatū Taonga is to “collate and share evidence, data and insights that demonstrate the far-reaching impact of arts, culture and heritage” (Manatū Taonga Long-Term Insights Briefing 2022, p. 17)

Currently, the cultural system evidence base in New Zealand has been uneven and fragmented. Without a shared blueprint or language to guide data collection, it has been challenging to coordinate efforts and build system-wide insights.

To date, efforts to develop indicators for cultural statistics (e.g., Cultural Indicators for New Zealand 2009) and articulate the value of culture (e.g., Value and Culture 2013) in New Zealand have had limited success. While there are some international models we can draw from for measuring cultural outcomes and the cultural/creative industries (e.g., UNESCO Culture | 2030 Indicators), it is important we have an evidence framework that reflects New Zealand’s unique cultural context.

Therefore, Te Kāpehu aims to:

• Provide a systematic way to collect, synthesise and report data and evidence on the health and value of our unique cultural system consistently over time
• Assist us to assess where evidence has already been generated and where there are gaps
• Support Manatū Taonga and other organisations in reporting on performance, impact, and value in relation to the priorities of the Government of the day, and other national and international reporting
• Guide the generation of relevant insights and sharing of these between stakeholders, increasing transparency and access to information
• Build a shared community of practice around cultural system evidence and insights.

Te Kāpehu – The Compass

Te Kāpehu consists of two main components: ngā wāhi urupounamu or areas of inquiry, which are pictured in Figure 1, and ngā āhuatanga or elements. The areas of inquiry are divided into two views, represented in green and blue respectively: he tirohanga whāiti sector outcomes, and he tirohanga whānui population outcomes.

Image

Statement on the use of Māori data

Māori evidence and data will be reflected in all areas of the framework to enable tangata whenua, tangata Tiriti and the Crown to better see and understand Māori outcomes and the contribution of te ao Māori to Aotearoa New Zealand. The collection and use of Māori evidence and data will be guided by values included in the Māori Data Governance Model (Te Kāhui Raraunga, 2023).

Areas of Inquiry
Ngā Wāhi

Sector Outcomes
He Tirohanga Whāiti

This portion of Te Kāpehu aims to enable understanding of the attributes and quality of the cultural system (who, what, where, how, how many/much) as well as how/how well the cultural system functions and performs, now and into the future.

The areas of inquiry are:

• Ngā Hononga Ahurea– Cultural Participation
• Te Aratuku – Delivery
• Te Haupū Moni me ngā Haumitanga – Funding & Investment
• Ngā Tūāhanga me ngā Rawa – Infrastructure & Assets
• Ngā Tāngata – People

Population Outcomes
He Tirohanga Whānui

This portion of Te Kāpehu identifies seven areas of inquiry, which represent the different types of value created by the cultural system for all New Zealanders.

The areas of inquiry are:

• Te Auahatanga – Creativity
• Te Ohanga – Economy
• Te Taiao – Environment
• Ngā Hononga ā-Ao – Global Connections
• Te Porihanga – Society
• Te Ao Māori
• Te Oranga – Wellbeing

Elements
Ngā Āhuatanga

Each area of inquiry contains a set of elements to guide how we will collect and synthesise evidence over time. The elements are the types of data and evidence that together will provide a picture of that area of inquiry.

For example, to develop insights on the cultural system’s contribution to the economy, we would analyse data relating to the flow-on effects of cultural activity to the wider economy, productivity, spending, trade, and work and volunteering.

Best practice terminology from national and international research is used to describe the elements. Research to date has also guided choices as to which elements fit within each area of inquiry, acknowledging that there will be some overlaps. For example, employment data could be used both to understand the characteristics of the workforce in the People area of inquiry, and also to demonstrate the value created through employment opportunities and volunteering in the Economy area of inquiry.

Sector Outcomes
He Tirohanga Whāiti

This portion of Te Kāpehu aims to enable understanding of the attributes and quality of the cultural system (who, what, where, how, how many/much) as well as how/how well the cultural system functions and performs, now and into the future.

Area of inquiry: Te Aratuku – Delivery

Elements:

• Creation of content works
• Events
• Governance
• Innovation
• Services
• Ways of working

Area of inquiry: Te Haupū Moni me ngā Haumitanga – Funding & Investment

Elements:

• Funding models & mechanisms
• Types of income & investment
  • Commercial revenue e.g. sponsorship, memberships, ticket sales
  • Government expenditure – central & local
  • Individual philanthropy & giving
  • Lotteries & gaming trusts
  • Māori-led investment
  • Trusts and foundations
  • Other income & investment

Area of inquiry: Ngā Tūāhanga me ngā Rawa – Infrastructure & Assets

Elements:

• Assets, collections & holdings
• Media coverage
• Organisations & businesses
• Venues & facilities

Area of inquiry: Ngā Tāngata – People

Elements:

• Artists & practitioners
• Career sustainability
• Learning pathways & development
• Workforce

Area of inquiry: Ngā Hononga Ahurea – Cultural Participation

Elements:

• Access & means
• Audiences/participants – characteristics, attitudes & behaviours
• Enablers & barriers
• International participation
• Māori cultural activities

Population Outcomes
He Tirohanga Whānui

This portion of Te Kāpehu identifies seven areas of inquiry, which represent the different types of value created by the cultural system for all New Zealanders.

Area of inquiry: Te Ao Māori

Elements:

• Cultural recovery
• Protection, preservation & revitalisation of mātauranga, taonga, toi and te reo Māori

Area of inquiry: Te Oranga – Wellbeing

Elements:

• Cultural capability & belonging
• Health – mental, physical, spiritual, community
• Subjective wellbeing

Area of inquiry: Te Auahatanga – Creativity

Elements:

• Advancement of ideas
• Freedom of expression
• Innovation
• Intellectual & cultural property

Area of inquiry: Te Ohanga – Economy

Elements:

• Exports & trade
• Flow-on effects to wider economy
• Productivity
• Spending
• Work & volunteering

Area of inquiry: Te Taiao – Environment

Elements:

• Climate adaptation & resilience
• Connection to place
• Environmental amenity
• Heritage protection & management

Area of inquiry: Ngā Hononga ā-Ao – Global Connections

Elements:

• Cultural diplomacy
• Foreign investment & trade
• Pacific regional identity
• Reputation & brand
• Soft power
• Tourism

Area of inquiry: Te Porihanga – Society

Elements:

• Democracy & civic engagement
• Knowledge & skills
• Local, national & cultural identity
• Protection & preservation of language & culture
• Public good
• Social cohesion & inclusion

How Te Kāpehu was developed

The process

Te Kāpehu has been developed in partnership with Manatū Taonga’s Crown-funded entities. Following endorsement from Crown agency chief executives, two working groups were formed to support the development of the framework, a Cultural Agency Working Group and He Rōpū Āwhina, a Māori advisory group. 

The process to develop Te Kāpehu included the following activities:

• Conducting a review of national and international literature and measurement frameworks relating to the cultural and creative industries, cultural statistics, mātauranga Māori and the value of culture to identify best practices and shared terminology
• Conducting a preliminary review and gap analysis of available national population-level data and evidence, with a focus on arts, culture, heritage, media and broadcasting, sport, active recreation and play to further test terminology
• Developing the theoretical model and terminology for the Framework based on the findings of the above research and testing within Manatū Taonga and with sector stakeholders
• Assessing alignment of the areas of inquiry and elements to other important strategies and frameworks across government and internationally, including the UNESCO Framework for Cultural Statistics (2009 and 2025), and UNESCO Culture | 2030 Indicators
• Assessing the appropriateness and responsiveness of Te Kāpehu and its implications relating to Māori data and the representation of Māori culture and mātauranga.

Considerations for Māori data and evidence

Māori data and evidence will be considered in all areas of inquiry. This work has been undertaken with the understanding that:

• Mātauranga is a taonga, with different meanings and significance for different groups.
• We must acknowledge the historical legacy of ‘research’ and ‘measurement,’ and their impacts on Māori communities and Māori Crown relations.
• The unique contribution of te ao Māori must be understood, first and foremost, from a Māori worldview. This will require the use of kaupapa Māori-informed approaches and tools such as He Ara Waiora.
• Strengthening the evidence base in relation to te ao Māori requires leadership from and engagement with Māori stakeholders to ensure research is meaningful, culturally appropriate and sustainable.

In our future work relating to Te Kāpehu, Manatū Taonga will continue to consider the implications of Te Kāpehu for Māori, including:

• The scope and limits of Manatū Taonga’s roles and responsibilities in relation to data and evidence as the steward of the cultural system
• How evidence may be used to support iwi, hapū, and hapori Māori aspirations while upholding the mana motuhake of Māori stakeholders
• Data access, governance, sovereignty and equity, including application of the Māori Data Governance Model (Te Kāhui Raraunga, 2023).
• How data and evidence relates to Manatū Taonga Treaty settlement commitments and Māori Crown relations.

Next steps

Manatū Taonga will use Te Kāpehu to guide the development of an ongoing Insights work programme. This will include:

• Developing a shared research agenda with cultural agencies
• Creating a series of synthesised data and evidence outputs based on the framework’s areas of inquiry
• Conducting new research where possible to address priority evidence gaps
• Working with stakeholders to consider how Te Kāpehu and the cultural system evidence base could be used to inform future performance measurement, programme evaluation and system insights
• Facilitating opportunities for cross-sector collaboration and networking.

Te Kāpehu will also be used to support Manatū Taonga in future outcomes and performance measurement and organisational reporting activities, in line with current and future reporting standards and the findings of a Parliamentary Inquiry into Performance Reporting and Public Accountability initiated in April 2025. This includes collaborating with stakeholders (including Crown funded entities and regional arts councils) to identify opportunities for Te Kāpehu to facilitate thinking about how value is described and subsequently measured.

Te Kāpehu is intended to be a living framework. This means that we will continue to reflect on its use, and refine it over time to ensure it is robust, fit-for-purpose and up to date with current best practices in research, measurement and evaluation.

If you have any questions, comments or feedback on Te Kāpehu, please contact us at [email protected].