the return on investment of the guggenheim museum bilbao
TRANSCRIPT
Volume 302 June 2006 452ndash67 International Journal of Urban and Regional Research
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd Published by Blackwell Publishing 9600 Garsington Road Oxford OX4 2DQ UK and 350 Main St Malden MA 02148 USA
Original Articles Debates and DevelopmentsDebate
The Return on Investment of the Guggenheim Museum Bilbao
BEATRIZ PLAZA
The city of Bilbao has made use of a museum as one of the multiple means to restructureits former industrial base However the effectiveness of this costly formula is not alwaysclear Three major issues have arisen the effects of Guggenheim Museum Bilbao onBilbaorsquos image the effects on overnight stays and the effects on the local economyThere is little debate about the first issue and room for more evidence on the secondand third issues The aim is to quantify the museumrsquos impact on tourism and employmentand to calculate its yield (Return on Investment and Net Present Value) The approachadopted is the quantitative analysis of statistical data to try to isolate the economiccontribution of the Guggenheim
Introduction
The contemporary urban planning scene often embraces the view that public institutionsand their spaces that focus on art and other forms of lsquohighrsquo culture characterize theprogressive dynamic city that will attract investments encourage civic pride andwelcome innovative individuals Such world class cities include Paris New YorkSingapore Berlin Manchester Glasgow and Toronto as documented in
CulturalPlanning an Urban Renaissance
by Graeme Evans (2001) These cities offer toresidents and visitors alike a taste of intellectual stimulation and appreciation for aspectsof the human condition as represented and preserved by artefacts objects andinterpretative displays
Could Bilbao also be considered an example of such a creative city Museums are aclear example of a lsquocultural industryrsquo a term used in an earlier period as a pejorativereference to the Hollywood machine and the associated apparatus of mass reproductionThe term seems to have gained a measure of respectability with Bilbao Theestablishment of the Guggenheim Museum in Bilbao (GMB) has attracted considerableattention both from European media and academics and particularly from criticsControversies regarding the effectiveness of the GMB have arisen in recent yearsAccording to Gonzaacutelez and Goacutemez (2001 899) lsquothe Guggenheimrsquos alleged multiplyingeffects in the city of Bilbao are not as positive at least in the medium term If thenumber of visitors exceeded the most optimistic expectations in the first year ofoperation an estimate pointed to a decrease in the ldquoGuggenheim effectrdquo for theBasque economyrsquo Graeme Evans quotes this paragraph (2003 433) as follows lsquoThe
The University of the Basque Country (Bilbao) 1UPV 00032321-H-139182001 provided financialsupport for this project I am grateful to MJ Grandes (less Business School Madrid) Chris Pickvance(University of Kent) Bryan Massam (York University) Michael Hebbert (University of Manchester) MoiraStevenson (Deputy Director Manchester City Galleries) Roberto Velasco (University of the BasqueCountry) Rocio Davis (University of Navarre) and Barbara Littlewood who kindly read an early draft ofthe article I am also grateful to Paz Moral (University of the Basque Country) Lina Pentildea (INE) andEUSTAT They are not responsible for my interpretations
Debates and Developments 453
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
economic impacts of the museum always notoriously hard to attribute have declinedwithin three years of opening and generated growth of only 047 to the Basque GNPin 1997rsquo Furthermore some authors (Rodriguez
et al
2001) attribute to the GMB astrictly consumption-oriented view detached from the endogenous mechanism ofcreation of economic value And to quote Vicario and Martinez Monje (2003 2395ndash6)lsquothere are doubts about the museumrsquos capacity to spearhead adequately the rise of adynamic flourishing culture and tourist industry Some claim that [the GMB] wascreated at enormous public expense drawing funds away from other culturalactivities hence the ldquoflip siderdquo to this ldquo Guggenheim effectrdquo rsquo
1
The purpose ofthis article is to engage their sceptical approach to the GMBrsquos effectiveness in generatingeconomic and social value
Several issues converge in these discussions first the use of signature architecturealways a controversial point in urban planning and development Many argue thatsignature architecture
2
mdash notably by people like Frank Gehry Norman Foster RenzoPiano Rem Koolhaas Daniel Libeskind and Zaha Hadid mdash guarantees urbandevelopment in itself Opponents to this trend point out that the gains are not automaticand the costs mdash which apart from the direct monetary cost might include changing thecharacter of a cityscape mdash outweigh the benefits Second the delegation of publicmoney for an activity that many consider irrelevant and exclusive raised heateddiscussions on the decision to build this museum Third many consider the building ofa Guggenheim in Bilbao as a subtle form of American hegemonic imperialism (McNeill2000 Tickell 2001) which contributes unnecessarily to a warped understanding ofglobalization Finally notwithstanding the lsquoGuggenheim effectrsquo a number of museumexpansions and openings have met with serious problems Take Santiago Calatravarsquosnew wing at the Milwaukee Art Museum (USA) opened in 2001 which did not attractthe number of visitors it had at first projected The City Museum of Washington DCinaugurated new buildings but was forced to close because of low attendance Thismuseum attracted only a fraction of the six-figure annual attendance projected when itopened in 2003 In the case of the Royal Armouries museum in Leeds surveys predicted13 million visitors whereas in reality the amount was one-tenth that number below200000 a year
In the context of studying the effect of a specific museum on tourism the case ofBilbao is particularly relevant and valuable Until the construction of the Guggenheimthe city boasted only a small arts museum which attracted less than 100000 visitors ayear most of them local citizens The fact that cities like London Madrid or New Yorkhave several excellent museums and other forms of art and entertainment makes it
1 For a full list of academic works regarding Bilbao and its regeneration process see httpwwwscholars-on-bilbaoinfo powered by Global Arts Networking Foundation (GANF) (2006) For thebasics see Velasco (1993) Goacutemez (1998) Plaza (1999 2000a 2000b) Esteban (2000) GoacutemezUranga and Etxebarria (2000) McNeill (2000) Gonzaacutelez and Goacutemez (2001) Gospodini (2001)Rodriguez
et al
(2001) Begg (2002) Hamnett and Shoval (2003) Massam and Plaza (2003) Strom(2003) Vicario and Martinez Monje (2003) Del Castillo and Haarich (2004) and Plaza and Massam(2004)
2 This attribute of museums has not been lost on planners and city officials elsewhere who seek tohire world-class architects like Gehry and Liberskind to brand their museum renovation schemesHowever being a lsquocelebrityrsquo is not a sufficient condition to ensure the uniqueness of an architectrsquosdesign since even notable artists produce inconsistent pieces of art lsquoArchitecture like all true worksof art is judged for itself irrespective of its author the material used the kind of forms used or itsposition (initial middle or late) in the authorrsquos line of research Every artist knows very well thatsome of hisher works are better than others and that success in artistic terms is no sure thingeven for the author who is the first to be surprised (thus Picassorsquos much repeated words ldquoI do notseek I findrdquo) Works of art then an artistrsquos best creations are uniquersquo (Frias 1995 3) Creativityis a highly elusive reality for architects likewise As a consequence we underline that strategiesbased solely on lsquouniquenessrsquo of design are highly risky in terms of fulfilling projected public goalsFortunately for the city of Bilbao Frank Gehryrsquos design has turned to be one of the masterpieces oftwentieth-century architecture but it must be remembered that it could also have failed
454 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
difficult to discern precisely what is the focus of tourist attention Bilbaorsquos offer of onespecific museum makes the city an almost perfect laboratory for testing the impact ofthis cultural investment In fact Bilbao the largest city in the Basque Country and asymbolic site of industrial regeneration has experienced a significant growth in tourismsince the opening of the Guggenheim Although not previously known for its tourismpotential because of a combination of factors that included extreme pollution and acomplex political situation approximately 7 million people have visited the GMB todate (October 1997ndashDecember 2004) Note that the population of Bilbaorsquos metropolitanarea is less than 1 million whilst the population within the administrative boundaries is400000 The visitor per inhabitant ratio is two visitors per person in the city centre Wewill argue that these figures illustrate the role the Guggenheim plays in the city of Bilbaoand analyse the three major issues that have arisen and which prove the value of themuseum in this context the effects on overnight stays and the effects on employmentand tax income In short the aim of this article is to quantify these effects analysebriefly the results viewed and evaluate the GMBrsquos return on investment (ROI)
The impact on tourism and on employment of the GMB
After the opening of the GMB the city of Bilbao has positioned itself as a weekenddestination for Spanish and foreign visitors alike Formerly business overnight staysduring the week predominated lsquoBilbao was a grey cold and unfriendly industrial city[Visitors] came only for business motives and normally avoided staying over theweekendrsquo (Del Castillo and Haarich 2004) Things have changed A comparisonbetween early data on pre-Guggenheim tourism and current information speaks foritself An initial scan of the data reveals an annual decline in the number of visitors byapproximately 84 between January 1976 and December 1980 a yearly increase of3 between January 1981 and September 1997 and an annual 6 increase betweenOctober 1997 and December 2004 (Figure 1) Considering that the GMB opened itsdoors in October 1997 the sharp rise in the number of tourists can logically be attributedto the museum visitors
The impact of the GMB is observed in the number of overnight stays A dataset with348 months is used to analyse the impact with monthly data from January 1976 toDecember 2004 The statistical data concerning the overnight stays in the BasqueCountry are drawn from the Spanish Governmentrsquos Statistical Authority (INErsquos Surveyon Tourist Establishments) This study employs a time series analysis methodology mdashARIMA models
3
The fitted estimation is given in Table 1The tests used are well adjusted
4
and are the ones generally used in surveys of thisnature As such the conclusions may be considered valid The reading of this resultattributes to the GMB a rise of 61742 monthly overnight stays
5
that is the
3 The ARIMA models are an estimation method frequently employed in tourism research (Gonzalezand Moral 1995)
Φ
(
L
)
Y
t
=
Θ
(
L
)
ε
t
+
micro
+
δ
where
Y
t
are the overnight stays (seasonally adjusted)
Φ
(
L
) is the polynomial with the stationary autoregressive roots and
Θ
(
L
) the invertible movingaverage polynomial
micro
is the constant and
δ
the intervention variable
δ
is a dummy variable(DMMGMB in Table 1) defined as 0 up to 1997M9 and 1 from 1997M10 onwards to measure the GMBimpact Logarithms and first differences of
Y
t
have been taken to stabilize variance and meanrespectively [D(LOG(ONSsa)) in Table 1] The Breusch-Godfrey Serial Correlation LM Test is used tocheck serial autocorrelation The White Test is used to test heteroskedasticity and the Jarque-Berastatistic is used to test normality The presence of outliers is corrected through the use of dummies
4 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
minus
287 Schwarzcriterion
=
minus
069 Breusch-Godfreyrsquos Serial Correlation LM Test
=
120 Whitersquos HeteroskedasticityTest
=
052 Jarque-Bera Test
=
0135 A 064 increase of monthly overnight stays is due to the GMB (see Table 1) which corresponds to
a rise of 61742 monthly overnight stays
Debates and Developments 455
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
equivalent of 740904 overnight stays per year The question arises as to theplausibility of these results According to Table 2 the average number of visitors tothe GMB per month is 82580 of which 80 are non-Basque that is 66064 visitorsPresumably a significant percentage of these non-Basque Country visitors would stayovernight in the Basque Country Therefore the result from the ARIMA model isreasonable and in spite of the sharp jump in figures we can conclude that theseresults are not only plausible but real As such the issue of the rise in tourism isunquestionable
In this context the challenge facing the Board of Directors of the GMB is to maintainthese figures in a world of increasing competition between important global museumsThe expansion of the Tate Gallery in London the renovation of New Yorkrsquos MoMAand the plans to open a Louvre in Atlanta demonstrate that museum developers areconscious of a discerning public and are catering for their needs As time passes andthe novelty of the GMB wanes the challenge is not only to continue to attract newvisitors but to inspire those who have come before to revisit a museum that continuesto change
Apart from its cultural aims the main purpose of the GMB is to generate economicactivity as emphasized from the beginning of the project by either fostering demandfor the businesses already established in the area or creating new employment Themission and vision of the GMB has to be seen within the context of the city andsurrounding region Bilbao was Spainrsquos northern capital of steel and shipping until themid-1970s mdash then the recession struck and turned this old industrial city into a decayingbackwater Between 1979 and 1985 a large part of the economic structure deterioratedand almost 25 of the industrial jobs in metropolitan Bilbao disappeared (Goacutemez1998) In the late 1980s the cityrsquos authorities began to take the tourism industry seriouslyas a source of job creation that could possibly fill the gaps left by job losses in the oldermanufacturing industries
Figure 1
Visitors to the GMB and overnight stays in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) ONSsa mdash overnight staysseasonally adjusted by the Census X-11 the standard US Bureau of the Census adjustmentmethod GMBsa mdash visitors to the GMB seasonally adjusted Note ETA declared a ceasefirein September 1998 which ended in December 1999 (source Instituto Nacional de Estadistica(INE) and Guggenheim Museum Bilbao)
0
50000
100000
150000
200000
250000
300000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
ONSsa GMBsa
456 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Data show an important growth of employment from the opening of the GMBonwards (Figure 2) which may be attributable to the museum However we must alsoconsider whether it stems from other causes such as the favourable economic cycleworldwide or the growth of specific RampD services in the area Using the inputndashoutputmethodology the GMBrsquos official report states that the museum has contributed to themaintenance (note not the lsquocreationrsquo) of almost 4547 employees We interpret theirterm lsquomaintenancersquo in the sense that the GMB has increased the demand for businesseswhich were operating well under their full capacity
The impact of the GMB with respect to employment can be observed using atime series approach rather than a cross-section perspective The statistical dataconcerning employment are drawn from the Spanish National Statistic Institute(quarterly data from the third quarter 1977 to the second quarter 2004) An ARIMAmodel is undertaken where the dependant variable is the number of full-time jobsin the province of Biscay for the service sector (LB) As such we can detect thechange in trend (TRENDDMMGMB in Table 3) in the creation of new jobs inthe services sector from the opening of the museum if any such change in trendexists
Table 1
ARIMA (1211) for the number of overnight stays in the Basque Country (monthlydata seasonally adjusted from January 1976 to December 2004)
Variable Coefficient Std Error
t
-statistic Probability
C
minus
0000208 0001564
minus
0132797 08944
DMMGMB
0006427
0003087 2082216 00381
DMM79M07
minus
0147334 0047701
minus
3088716 00022
DMM79M09 0185401 0046886 3954302 00001
DMM81M08 0132837 0044043 3016103 00028
DMM89M03 0288764 0054455 5302785 00000
DMM89M04
minus
0245634 0054288
minus
4524672 00000
DMM90M07
minus
0133927 0044557
minus
3005774 00029
DMM90M10 0146889 0044286 3316794 00010
DMM02M03 0166586 0054834 3038013 00026
DMM02M04
minus
0206736 0054706
minus
3779074 00002
AR(4) 0130412 0057628 2262995 00243
SAR(6) 0138867 0055518 2501289 00129
SAR(12)
minus
0215099 0054669
minus
3934534 00001
MA(1)
minus
0613014 0047332
minus
1295124 00000
R
2
0479
Adjusted
R
2
0456
F
-statistic 207
Prob(
F
-statistic) 000
Dependent variable D(LOG(ONSsa))Method least squaresSample (adjusted) June 1977 to December 2004Included observations 331 after adjusting endpointsConvergence achieved after 13 iterationsBackcast May 1977
Note
Bold figure represents the change in trend due to the GMB Logarithms and first differences of ONSsaD(LOG(ONSsa)) have been taken to stabilize variance and mean respectively
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 453
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
economic impacts of the museum always notoriously hard to attribute have declinedwithin three years of opening and generated growth of only 047 to the Basque GNPin 1997rsquo Furthermore some authors (Rodriguez
et al
2001) attribute to the GMB astrictly consumption-oriented view detached from the endogenous mechanism ofcreation of economic value And to quote Vicario and Martinez Monje (2003 2395ndash6)lsquothere are doubts about the museumrsquos capacity to spearhead adequately the rise of adynamic flourishing culture and tourist industry Some claim that [the GMB] wascreated at enormous public expense drawing funds away from other culturalactivities hence the ldquoflip siderdquo to this ldquo Guggenheim effectrdquo rsquo
1
The purpose ofthis article is to engage their sceptical approach to the GMBrsquos effectiveness in generatingeconomic and social value
Several issues converge in these discussions first the use of signature architecturealways a controversial point in urban planning and development Many argue thatsignature architecture
2
mdash notably by people like Frank Gehry Norman Foster RenzoPiano Rem Koolhaas Daniel Libeskind and Zaha Hadid mdash guarantees urbandevelopment in itself Opponents to this trend point out that the gains are not automaticand the costs mdash which apart from the direct monetary cost might include changing thecharacter of a cityscape mdash outweigh the benefits Second the delegation of publicmoney for an activity that many consider irrelevant and exclusive raised heateddiscussions on the decision to build this museum Third many consider the building ofa Guggenheim in Bilbao as a subtle form of American hegemonic imperialism (McNeill2000 Tickell 2001) which contributes unnecessarily to a warped understanding ofglobalization Finally notwithstanding the lsquoGuggenheim effectrsquo a number of museumexpansions and openings have met with serious problems Take Santiago Calatravarsquosnew wing at the Milwaukee Art Museum (USA) opened in 2001 which did not attractthe number of visitors it had at first projected The City Museum of Washington DCinaugurated new buildings but was forced to close because of low attendance Thismuseum attracted only a fraction of the six-figure annual attendance projected when itopened in 2003 In the case of the Royal Armouries museum in Leeds surveys predicted13 million visitors whereas in reality the amount was one-tenth that number below200000 a year
In the context of studying the effect of a specific museum on tourism the case ofBilbao is particularly relevant and valuable Until the construction of the Guggenheimthe city boasted only a small arts museum which attracted less than 100000 visitors ayear most of them local citizens The fact that cities like London Madrid or New Yorkhave several excellent museums and other forms of art and entertainment makes it
1 For a full list of academic works regarding Bilbao and its regeneration process see httpwwwscholars-on-bilbaoinfo powered by Global Arts Networking Foundation (GANF) (2006) For thebasics see Velasco (1993) Goacutemez (1998) Plaza (1999 2000a 2000b) Esteban (2000) GoacutemezUranga and Etxebarria (2000) McNeill (2000) Gonzaacutelez and Goacutemez (2001) Gospodini (2001)Rodriguez
et al
(2001) Begg (2002) Hamnett and Shoval (2003) Massam and Plaza (2003) Strom(2003) Vicario and Martinez Monje (2003) Del Castillo and Haarich (2004) and Plaza and Massam(2004)
2 This attribute of museums has not been lost on planners and city officials elsewhere who seek tohire world-class architects like Gehry and Liberskind to brand their museum renovation schemesHowever being a lsquocelebrityrsquo is not a sufficient condition to ensure the uniqueness of an architectrsquosdesign since even notable artists produce inconsistent pieces of art lsquoArchitecture like all true worksof art is judged for itself irrespective of its author the material used the kind of forms used or itsposition (initial middle or late) in the authorrsquos line of research Every artist knows very well thatsome of hisher works are better than others and that success in artistic terms is no sure thingeven for the author who is the first to be surprised (thus Picassorsquos much repeated words ldquoI do notseek I findrdquo) Works of art then an artistrsquos best creations are uniquersquo (Frias 1995 3) Creativityis a highly elusive reality for architects likewise As a consequence we underline that strategiesbased solely on lsquouniquenessrsquo of design are highly risky in terms of fulfilling projected public goalsFortunately for the city of Bilbao Frank Gehryrsquos design has turned to be one of the masterpieces oftwentieth-century architecture but it must be remembered that it could also have failed
454 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
difficult to discern precisely what is the focus of tourist attention Bilbaorsquos offer of onespecific museum makes the city an almost perfect laboratory for testing the impact ofthis cultural investment In fact Bilbao the largest city in the Basque Country and asymbolic site of industrial regeneration has experienced a significant growth in tourismsince the opening of the Guggenheim Although not previously known for its tourismpotential because of a combination of factors that included extreme pollution and acomplex political situation approximately 7 million people have visited the GMB todate (October 1997ndashDecember 2004) Note that the population of Bilbaorsquos metropolitanarea is less than 1 million whilst the population within the administrative boundaries is400000 The visitor per inhabitant ratio is two visitors per person in the city centre Wewill argue that these figures illustrate the role the Guggenheim plays in the city of Bilbaoand analyse the three major issues that have arisen and which prove the value of themuseum in this context the effects on overnight stays and the effects on employmentand tax income In short the aim of this article is to quantify these effects analysebriefly the results viewed and evaluate the GMBrsquos return on investment (ROI)
The impact on tourism and on employment of the GMB
After the opening of the GMB the city of Bilbao has positioned itself as a weekenddestination for Spanish and foreign visitors alike Formerly business overnight staysduring the week predominated lsquoBilbao was a grey cold and unfriendly industrial city[Visitors] came only for business motives and normally avoided staying over theweekendrsquo (Del Castillo and Haarich 2004) Things have changed A comparisonbetween early data on pre-Guggenheim tourism and current information speaks foritself An initial scan of the data reveals an annual decline in the number of visitors byapproximately 84 between January 1976 and December 1980 a yearly increase of3 between January 1981 and September 1997 and an annual 6 increase betweenOctober 1997 and December 2004 (Figure 1) Considering that the GMB opened itsdoors in October 1997 the sharp rise in the number of tourists can logically be attributedto the museum visitors
The impact of the GMB is observed in the number of overnight stays A dataset with348 months is used to analyse the impact with monthly data from January 1976 toDecember 2004 The statistical data concerning the overnight stays in the BasqueCountry are drawn from the Spanish Governmentrsquos Statistical Authority (INErsquos Surveyon Tourist Establishments) This study employs a time series analysis methodology mdashARIMA models
3
The fitted estimation is given in Table 1The tests used are well adjusted
4
and are the ones generally used in surveys of thisnature As such the conclusions may be considered valid The reading of this resultattributes to the GMB a rise of 61742 monthly overnight stays
5
that is the
3 The ARIMA models are an estimation method frequently employed in tourism research (Gonzalezand Moral 1995)
Φ
(
L
)
Y
t
=
Θ
(
L
)
ε
t
+
micro
+
δ
where
Y
t
are the overnight stays (seasonally adjusted)
Φ
(
L
) is the polynomial with the stationary autoregressive roots and
Θ
(
L
) the invertible movingaverage polynomial
micro
is the constant and
δ
the intervention variable
δ
is a dummy variable(DMMGMB in Table 1) defined as 0 up to 1997M9 and 1 from 1997M10 onwards to measure the GMBimpact Logarithms and first differences of
Y
t
have been taken to stabilize variance and meanrespectively [D(LOG(ONSsa)) in Table 1] The Breusch-Godfrey Serial Correlation LM Test is used tocheck serial autocorrelation The White Test is used to test heteroskedasticity and the Jarque-Berastatistic is used to test normality The presence of outliers is corrected through the use of dummies
4 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
minus
287 Schwarzcriterion
=
minus
069 Breusch-Godfreyrsquos Serial Correlation LM Test
=
120 Whitersquos HeteroskedasticityTest
=
052 Jarque-Bera Test
=
0135 A 064 increase of monthly overnight stays is due to the GMB (see Table 1) which corresponds to
a rise of 61742 monthly overnight stays
Debates and Developments 455
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
equivalent of 740904 overnight stays per year The question arises as to theplausibility of these results According to Table 2 the average number of visitors tothe GMB per month is 82580 of which 80 are non-Basque that is 66064 visitorsPresumably a significant percentage of these non-Basque Country visitors would stayovernight in the Basque Country Therefore the result from the ARIMA model isreasonable and in spite of the sharp jump in figures we can conclude that theseresults are not only plausible but real As such the issue of the rise in tourism isunquestionable
In this context the challenge facing the Board of Directors of the GMB is to maintainthese figures in a world of increasing competition between important global museumsThe expansion of the Tate Gallery in London the renovation of New Yorkrsquos MoMAand the plans to open a Louvre in Atlanta demonstrate that museum developers areconscious of a discerning public and are catering for their needs As time passes andthe novelty of the GMB wanes the challenge is not only to continue to attract newvisitors but to inspire those who have come before to revisit a museum that continuesto change
Apart from its cultural aims the main purpose of the GMB is to generate economicactivity as emphasized from the beginning of the project by either fostering demandfor the businesses already established in the area or creating new employment Themission and vision of the GMB has to be seen within the context of the city andsurrounding region Bilbao was Spainrsquos northern capital of steel and shipping until themid-1970s mdash then the recession struck and turned this old industrial city into a decayingbackwater Between 1979 and 1985 a large part of the economic structure deterioratedand almost 25 of the industrial jobs in metropolitan Bilbao disappeared (Goacutemez1998) In the late 1980s the cityrsquos authorities began to take the tourism industry seriouslyas a source of job creation that could possibly fill the gaps left by job losses in the oldermanufacturing industries
Figure 1
Visitors to the GMB and overnight stays in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) ONSsa mdash overnight staysseasonally adjusted by the Census X-11 the standard US Bureau of the Census adjustmentmethod GMBsa mdash visitors to the GMB seasonally adjusted Note ETA declared a ceasefirein September 1998 which ended in December 1999 (source Instituto Nacional de Estadistica(INE) and Guggenheim Museum Bilbao)
0
50000
100000
150000
200000
250000
300000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
ONSsa GMBsa
456 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Data show an important growth of employment from the opening of the GMBonwards (Figure 2) which may be attributable to the museum However we must alsoconsider whether it stems from other causes such as the favourable economic cycleworldwide or the growth of specific RampD services in the area Using the inputndashoutputmethodology the GMBrsquos official report states that the museum has contributed to themaintenance (note not the lsquocreationrsquo) of almost 4547 employees We interpret theirterm lsquomaintenancersquo in the sense that the GMB has increased the demand for businesseswhich were operating well under their full capacity
The impact of the GMB with respect to employment can be observed using atime series approach rather than a cross-section perspective The statistical dataconcerning employment are drawn from the Spanish National Statistic Institute(quarterly data from the third quarter 1977 to the second quarter 2004) An ARIMAmodel is undertaken where the dependant variable is the number of full-time jobsin the province of Biscay for the service sector (LB) As such we can detect thechange in trend (TRENDDMMGMB in Table 3) in the creation of new jobs inthe services sector from the opening of the museum if any such change in trendexists
Table 1
ARIMA (1211) for the number of overnight stays in the Basque Country (monthlydata seasonally adjusted from January 1976 to December 2004)
Variable Coefficient Std Error
t
-statistic Probability
C
minus
0000208 0001564
minus
0132797 08944
DMMGMB
0006427
0003087 2082216 00381
DMM79M07
minus
0147334 0047701
minus
3088716 00022
DMM79M09 0185401 0046886 3954302 00001
DMM81M08 0132837 0044043 3016103 00028
DMM89M03 0288764 0054455 5302785 00000
DMM89M04
minus
0245634 0054288
minus
4524672 00000
DMM90M07
minus
0133927 0044557
minus
3005774 00029
DMM90M10 0146889 0044286 3316794 00010
DMM02M03 0166586 0054834 3038013 00026
DMM02M04
minus
0206736 0054706
minus
3779074 00002
AR(4) 0130412 0057628 2262995 00243
SAR(6) 0138867 0055518 2501289 00129
SAR(12)
minus
0215099 0054669
minus
3934534 00001
MA(1)
minus
0613014 0047332
minus
1295124 00000
R
2
0479
Adjusted
R
2
0456
F
-statistic 207
Prob(
F
-statistic) 000
Dependent variable D(LOG(ONSsa))Method least squaresSample (adjusted) June 1977 to December 2004Included observations 331 after adjusting endpointsConvergence achieved after 13 iterationsBackcast May 1977
Note
Bold figure represents the change in trend due to the GMB Logarithms and first differences of ONSsaD(LOG(ONSsa)) have been taken to stabilize variance and mean respectively
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
454 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
difficult to discern precisely what is the focus of tourist attention Bilbaorsquos offer of onespecific museum makes the city an almost perfect laboratory for testing the impact ofthis cultural investment In fact Bilbao the largest city in the Basque Country and asymbolic site of industrial regeneration has experienced a significant growth in tourismsince the opening of the Guggenheim Although not previously known for its tourismpotential because of a combination of factors that included extreme pollution and acomplex political situation approximately 7 million people have visited the GMB todate (October 1997ndashDecember 2004) Note that the population of Bilbaorsquos metropolitanarea is less than 1 million whilst the population within the administrative boundaries is400000 The visitor per inhabitant ratio is two visitors per person in the city centre Wewill argue that these figures illustrate the role the Guggenheim plays in the city of Bilbaoand analyse the three major issues that have arisen and which prove the value of themuseum in this context the effects on overnight stays and the effects on employmentand tax income In short the aim of this article is to quantify these effects analysebriefly the results viewed and evaluate the GMBrsquos return on investment (ROI)
The impact on tourism and on employment of the GMB
After the opening of the GMB the city of Bilbao has positioned itself as a weekenddestination for Spanish and foreign visitors alike Formerly business overnight staysduring the week predominated lsquoBilbao was a grey cold and unfriendly industrial city[Visitors] came only for business motives and normally avoided staying over theweekendrsquo (Del Castillo and Haarich 2004) Things have changed A comparisonbetween early data on pre-Guggenheim tourism and current information speaks foritself An initial scan of the data reveals an annual decline in the number of visitors byapproximately 84 between January 1976 and December 1980 a yearly increase of3 between January 1981 and September 1997 and an annual 6 increase betweenOctober 1997 and December 2004 (Figure 1) Considering that the GMB opened itsdoors in October 1997 the sharp rise in the number of tourists can logically be attributedto the museum visitors
The impact of the GMB is observed in the number of overnight stays A dataset with348 months is used to analyse the impact with monthly data from January 1976 toDecember 2004 The statistical data concerning the overnight stays in the BasqueCountry are drawn from the Spanish Governmentrsquos Statistical Authority (INErsquos Surveyon Tourist Establishments) This study employs a time series analysis methodology mdashARIMA models
3
The fitted estimation is given in Table 1The tests used are well adjusted
4
and are the ones generally used in surveys of thisnature As such the conclusions may be considered valid The reading of this resultattributes to the GMB a rise of 61742 monthly overnight stays
5
that is the
3 The ARIMA models are an estimation method frequently employed in tourism research (Gonzalezand Moral 1995)
Φ
(
L
)
Y
t
=
Θ
(
L
)
ε
t
+
micro
+
δ
where
Y
t
are the overnight stays (seasonally adjusted)
Φ
(
L
) is the polynomial with the stationary autoregressive roots and
Θ
(
L
) the invertible movingaverage polynomial
micro
is the constant and
δ
the intervention variable
δ
is a dummy variable(DMMGMB in Table 1) defined as 0 up to 1997M9 and 1 from 1997M10 onwards to measure the GMBimpact Logarithms and first differences of
Y
t
have been taken to stabilize variance and meanrespectively [D(LOG(ONSsa)) in Table 1] The Breusch-Godfrey Serial Correlation LM Test is used tocheck serial autocorrelation The White Test is used to test heteroskedasticity and the Jarque-Berastatistic is used to test normality The presence of outliers is corrected through the use of dummies
4 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
minus
287 Schwarzcriterion
=
minus
069 Breusch-Godfreyrsquos Serial Correlation LM Test
=
120 Whitersquos HeteroskedasticityTest
=
052 Jarque-Bera Test
=
0135 A 064 increase of monthly overnight stays is due to the GMB (see Table 1) which corresponds to
a rise of 61742 monthly overnight stays
Debates and Developments 455
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
equivalent of 740904 overnight stays per year The question arises as to theplausibility of these results According to Table 2 the average number of visitors tothe GMB per month is 82580 of which 80 are non-Basque that is 66064 visitorsPresumably a significant percentage of these non-Basque Country visitors would stayovernight in the Basque Country Therefore the result from the ARIMA model isreasonable and in spite of the sharp jump in figures we can conclude that theseresults are not only plausible but real As such the issue of the rise in tourism isunquestionable
In this context the challenge facing the Board of Directors of the GMB is to maintainthese figures in a world of increasing competition between important global museumsThe expansion of the Tate Gallery in London the renovation of New Yorkrsquos MoMAand the plans to open a Louvre in Atlanta demonstrate that museum developers areconscious of a discerning public and are catering for their needs As time passes andthe novelty of the GMB wanes the challenge is not only to continue to attract newvisitors but to inspire those who have come before to revisit a museum that continuesto change
Apart from its cultural aims the main purpose of the GMB is to generate economicactivity as emphasized from the beginning of the project by either fostering demandfor the businesses already established in the area or creating new employment Themission and vision of the GMB has to be seen within the context of the city andsurrounding region Bilbao was Spainrsquos northern capital of steel and shipping until themid-1970s mdash then the recession struck and turned this old industrial city into a decayingbackwater Between 1979 and 1985 a large part of the economic structure deterioratedand almost 25 of the industrial jobs in metropolitan Bilbao disappeared (Goacutemez1998) In the late 1980s the cityrsquos authorities began to take the tourism industry seriouslyas a source of job creation that could possibly fill the gaps left by job losses in the oldermanufacturing industries
Figure 1
Visitors to the GMB and overnight stays in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) ONSsa mdash overnight staysseasonally adjusted by the Census X-11 the standard US Bureau of the Census adjustmentmethod GMBsa mdash visitors to the GMB seasonally adjusted Note ETA declared a ceasefirein September 1998 which ended in December 1999 (source Instituto Nacional de Estadistica(INE) and Guggenheim Museum Bilbao)
0
50000
100000
150000
200000
250000
300000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
ONSsa GMBsa
456 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Data show an important growth of employment from the opening of the GMBonwards (Figure 2) which may be attributable to the museum However we must alsoconsider whether it stems from other causes such as the favourable economic cycleworldwide or the growth of specific RampD services in the area Using the inputndashoutputmethodology the GMBrsquos official report states that the museum has contributed to themaintenance (note not the lsquocreationrsquo) of almost 4547 employees We interpret theirterm lsquomaintenancersquo in the sense that the GMB has increased the demand for businesseswhich were operating well under their full capacity
The impact of the GMB with respect to employment can be observed using atime series approach rather than a cross-section perspective The statistical dataconcerning employment are drawn from the Spanish National Statistic Institute(quarterly data from the third quarter 1977 to the second quarter 2004) An ARIMAmodel is undertaken where the dependant variable is the number of full-time jobsin the province of Biscay for the service sector (LB) As such we can detect thechange in trend (TRENDDMMGMB in Table 3) in the creation of new jobs inthe services sector from the opening of the museum if any such change in trendexists
Table 1
ARIMA (1211) for the number of overnight stays in the Basque Country (monthlydata seasonally adjusted from January 1976 to December 2004)
Variable Coefficient Std Error
t
-statistic Probability
C
minus
0000208 0001564
minus
0132797 08944
DMMGMB
0006427
0003087 2082216 00381
DMM79M07
minus
0147334 0047701
minus
3088716 00022
DMM79M09 0185401 0046886 3954302 00001
DMM81M08 0132837 0044043 3016103 00028
DMM89M03 0288764 0054455 5302785 00000
DMM89M04
minus
0245634 0054288
minus
4524672 00000
DMM90M07
minus
0133927 0044557
minus
3005774 00029
DMM90M10 0146889 0044286 3316794 00010
DMM02M03 0166586 0054834 3038013 00026
DMM02M04
minus
0206736 0054706
minus
3779074 00002
AR(4) 0130412 0057628 2262995 00243
SAR(6) 0138867 0055518 2501289 00129
SAR(12)
minus
0215099 0054669
minus
3934534 00001
MA(1)
minus
0613014 0047332
minus
1295124 00000
R
2
0479
Adjusted
R
2
0456
F
-statistic 207
Prob(
F
-statistic) 000
Dependent variable D(LOG(ONSsa))Method least squaresSample (adjusted) June 1977 to December 2004Included observations 331 after adjusting endpointsConvergence achieved after 13 iterationsBackcast May 1977
Note
Bold figure represents the change in trend due to the GMB Logarithms and first differences of ONSsaD(LOG(ONSsa)) have been taken to stabilize variance and mean respectively
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 455
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
equivalent of 740904 overnight stays per year The question arises as to theplausibility of these results According to Table 2 the average number of visitors tothe GMB per month is 82580 of which 80 are non-Basque that is 66064 visitorsPresumably a significant percentage of these non-Basque Country visitors would stayovernight in the Basque Country Therefore the result from the ARIMA model isreasonable and in spite of the sharp jump in figures we can conclude that theseresults are not only plausible but real As such the issue of the rise in tourism isunquestionable
In this context the challenge facing the Board of Directors of the GMB is to maintainthese figures in a world of increasing competition between important global museumsThe expansion of the Tate Gallery in London the renovation of New Yorkrsquos MoMAand the plans to open a Louvre in Atlanta demonstrate that museum developers areconscious of a discerning public and are catering for their needs As time passes andthe novelty of the GMB wanes the challenge is not only to continue to attract newvisitors but to inspire those who have come before to revisit a museum that continuesto change
Apart from its cultural aims the main purpose of the GMB is to generate economicactivity as emphasized from the beginning of the project by either fostering demandfor the businesses already established in the area or creating new employment Themission and vision of the GMB has to be seen within the context of the city andsurrounding region Bilbao was Spainrsquos northern capital of steel and shipping until themid-1970s mdash then the recession struck and turned this old industrial city into a decayingbackwater Between 1979 and 1985 a large part of the economic structure deterioratedand almost 25 of the industrial jobs in metropolitan Bilbao disappeared (Goacutemez1998) In the late 1980s the cityrsquos authorities began to take the tourism industry seriouslyas a source of job creation that could possibly fill the gaps left by job losses in the oldermanufacturing industries
Figure 1
Visitors to the GMB and overnight stays in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) ONSsa mdash overnight staysseasonally adjusted by the Census X-11 the standard US Bureau of the Census adjustmentmethod GMBsa mdash visitors to the GMB seasonally adjusted Note ETA declared a ceasefirein September 1998 which ended in December 1999 (source Instituto Nacional de Estadistica(INE) and Guggenheim Museum Bilbao)
0
50000
100000
150000
200000
250000
300000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
ONSsa GMBsa
456 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Data show an important growth of employment from the opening of the GMBonwards (Figure 2) which may be attributable to the museum However we must alsoconsider whether it stems from other causes such as the favourable economic cycleworldwide or the growth of specific RampD services in the area Using the inputndashoutputmethodology the GMBrsquos official report states that the museum has contributed to themaintenance (note not the lsquocreationrsquo) of almost 4547 employees We interpret theirterm lsquomaintenancersquo in the sense that the GMB has increased the demand for businesseswhich were operating well under their full capacity
The impact of the GMB with respect to employment can be observed using atime series approach rather than a cross-section perspective The statistical dataconcerning employment are drawn from the Spanish National Statistic Institute(quarterly data from the third quarter 1977 to the second quarter 2004) An ARIMAmodel is undertaken where the dependant variable is the number of full-time jobsin the province of Biscay for the service sector (LB) As such we can detect thechange in trend (TRENDDMMGMB in Table 3) in the creation of new jobs inthe services sector from the opening of the museum if any such change in trendexists
Table 1
ARIMA (1211) for the number of overnight stays in the Basque Country (monthlydata seasonally adjusted from January 1976 to December 2004)
Variable Coefficient Std Error
t
-statistic Probability
C
minus
0000208 0001564
minus
0132797 08944
DMMGMB
0006427
0003087 2082216 00381
DMM79M07
minus
0147334 0047701
minus
3088716 00022
DMM79M09 0185401 0046886 3954302 00001
DMM81M08 0132837 0044043 3016103 00028
DMM89M03 0288764 0054455 5302785 00000
DMM89M04
minus
0245634 0054288
minus
4524672 00000
DMM90M07
minus
0133927 0044557
minus
3005774 00029
DMM90M10 0146889 0044286 3316794 00010
DMM02M03 0166586 0054834 3038013 00026
DMM02M04
minus
0206736 0054706
minus
3779074 00002
AR(4) 0130412 0057628 2262995 00243
SAR(6) 0138867 0055518 2501289 00129
SAR(12)
minus
0215099 0054669
minus
3934534 00001
MA(1)
minus
0613014 0047332
minus
1295124 00000
R
2
0479
Adjusted
R
2
0456
F
-statistic 207
Prob(
F
-statistic) 000
Dependent variable D(LOG(ONSsa))Method least squaresSample (adjusted) June 1977 to December 2004Included observations 331 after adjusting endpointsConvergence achieved after 13 iterationsBackcast May 1977
Note
Bold figure represents the change in trend due to the GMB Logarithms and first differences of ONSsaD(LOG(ONSsa)) have been taken to stabilize variance and mean respectively
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
456 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Data show an important growth of employment from the opening of the GMBonwards (Figure 2) which may be attributable to the museum However we must alsoconsider whether it stems from other causes such as the favourable economic cycleworldwide or the growth of specific RampD services in the area Using the inputndashoutputmethodology the GMBrsquos official report states that the museum has contributed to themaintenance (note not the lsquocreationrsquo) of almost 4547 employees We interpret theirterm lsquomaintenancersquo in the sense that the GMB has increased the demand for businesseswhich were operating well under their full capacity
The impact of the GMB with respect to employment can be observed using atime series approach rather than a cross-section perspective The statistical dataconcerning employment are drawn from the Spanish National Statistic Institute(quarterly data from the third quarter 1977 to the second quarter 2004) An ARIMAmodel is undertaken where the dependant variable is the number of full-time jobsin the province of Biscay for the service sector (LB) As such we can detect thechange in trend (TRENDDMMGMB in Table 3) in the creation of new jobs inthe services sector from the opening of the museum if any such change in trendexists
Table 1
ARIMA (1211) for the number of overnight stays in the Basque Country (monthlydata seasonally adjusted from January 1976 to December 2004)
Variable Coefficient Std Error
t
-statistic Probability
C
minus
0000208 0001564
minus
0132797 08944
DMMGMB
0006427
0003087 2082216 00381
DMM79M07
minus
0147334 0047701
minus
3088716 00022
DMM79M09 0185401 0046886 3954302 00001
DMM81M08 0132837 0044043 3016103 00028
DMM89M03 0288764 0054455 5302785 00000
DMM89M04
minus
0245634 0054288
minus
4524672 00000
DMM90M07
minus
0133927 0044557
minus
3005774 00029
DMM90M10 0146889 0044286 3316794 00010
DMM02M03 0166586 0054834 3038013 00026
DMM02M04
minus
0206736 0054706
minus
3779074 00002
AR(4) 0130412 0057628 2262995 00243
SAR(6) 0138867 0055518 2501289 00129
SAR(12)
minus
0215099 0054669
minus
3934534 00001
MA(1)
minus
0613014 0047332
minus
1295124 00000
R
2
0479
Adjusted
R
2
0456
F
-statistic 207
Prob(
F
-statistic) 000
Dependent variable D(LOG(ONSsa))Method least squaresSample (adjusted) June 1977 to December 2004Included observations 331 after adjusting endpointsConvergence achieved after 13 iterationsBackcast May 1977
Note
Bold figure represents the change in trend due to the GMB Logarithms and first differences of ONSsaD(LOG(ONSsa)) have been taken to stabilize variance and mean respectively
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 457
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The fitted relationship is shown in Table 3 The tests used are well adjusted
6
Theequation implies that while from the third quarter 1976 to the third quarter 1997 thegeneration of employment in the service sector grew by an average of 709 jobs perquarter from the fourth quarter 1997 to the second quarter 2004 the increment rose to771 jobs per quarter This change in trend could be read as the generation of 907 newfull-time jobs as a result of the opening of the Guggenheim
Once again we have to question the validity and possible meanings of theseresults Is it plausible to sustain that the GMB has generated 907 new jobs Available
6 The roots of the AR and MA processes are outside the unit circle Akaike criterion
=
493 Schwarzcriterion
=
506 Breusch-Godfreyrsquos Serial Correlation LM Test
=
0876 Whitersquos HeteroskedasticityTest
=
09 Jarque-Bera Test
=
279
Table 2
Number of visitors to GMB (annual data from 1997 to 2004)
No of Visitors
OctoberndashDecember 1997 259234
1998 1307065
1999 1109495
2000 948875
2001 930000
2002 851628
2003 869022
2004 909144
Total 7184463
Number of months opened 87
Average monthly 82580
Non-Basque Country visitors (80) 66064
Figure 2
Number of persons employed full time in the service sector in the province ofBiscay (quarterly data from third quarter 1976 to second quarter 2004 thousand employees)(source Spanish National Statistics Institute [INE])
160
200
240
280
320
78 80 82 84 86 88 90 92 94 96 98 00 02 04
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
458 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
data for the hotels sector statistics supplied by the Basque Statistic Institute(EUSTAT) show that the number of persons employed in the hotels in the provinceof Biscay rose from 415 employees in October 1997 to 932 in December 2004(Figure 3) along with a sharp increase in the number of beds offered by the hotels(Figure 4) We can reasonably conclude by this comparison that the results aresignificant in this context
Table 3
ARIMA (300) for the number of persons employed full time in the service sectorin the province of Biscay (quarterly data from third quarter 1976 to second quarter 2004)
Variable Coefficient Std Error
t
-Statistic Probability
C 1514907 5009148 3024280 00000
TREND 0709139 0077975 9094391 00000
TRENDDMMGMB
0062654
0031711 1975773 00509
AR(1) 0824869 0063906 1290750 00000
SAR(3) 0263541 0109146 2414570 00175
R
2
0986
Adjusted
R
2
0986
F
-statistic 19296
Prob(
F
-statistic) 000
Dependent variable LBMethod least squaresSample (adjusted) March 1977 to February 2004Included observations 108 after adjusting endpointsConvergence achieved after 10 iterations
Note
Bold figure represents the change in trend due to the GMB
Figure 3
Number of persons employed in the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
800
1000
1200
1400
1600
1800
92 93 94 95 96 97 98 99 00 01 02 03 04
LHBiscay trend
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 459
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
With deep-rooted experience of the economic impact of heritage Greffe (2004) mdashwho belongs to the French School of Cultural Economics mdash developed a method basedon job functions that determines the number of new jobs according to the quantity ofvisitors 10000 visitors create 115 direct jobs (persons employed in the museum itself)and every direct job generates 062 indirect jobs (in the fields of interior architectureconservation and restoration) 384 induced jobs (by intermediate consumption) and 259jobs in the tourism sector (hotels restaurants tourist guides etc) Therefore 800000visitors per year would represent 92 direct jobs 58 indirect jobs 353 induced jobs and238 in the tourism sector that is 741 in all Accordingly 900000 visitors (Table 2)would generate 834 in total We can reasonably conclude again by this test that the timeseries results (907 new full-time jobs) are plausible and valid
7
Finally according to Del Castillo and Haarichrsquos (2004) analysis of the GMBrsquos effecton Bilbaorsquos business structure the sector dealing directly with tourists (restaurantshotels retail) is the one which benefits from the GMB although they also detect somepositive effects on some cultural and creative sectors such as translation and secretarialservices and the artistic library and handicraft sectors This cultural tourism has alsodeveloped new offers and new skills requirements in the businesses dealing directly with
7 Interestingly Greffe (2004) further analyses the conditions under which a heritage investmentbecomes an asset instead of a liability Certainly investments in heritage sites generate speculationon land prices increase the price of services and as a result hinder economic development whenthese prices affect the local firmsrsquo cost schemes As a consequence negative dynamics wouldsurpass the positive multiplier process In the opinion of Greffe the efficacy of a large heritageinvestment in developing a city depends on two variables Firstly the greater the diversification ofthe cityrsquos economy the greater the absorption of price tensions In other words the overall impactis negative depending on the weight of the heritage industry in the local economy Secondly themore the redevelopment zonersquos markets are integrated the easier the absorption of price tensionsDue to the significance of the non-heritage sector they will have adequate resources in terms oflabour goods and services for productive purposes In Greffersquos words (2004 308) lsquothis justifiesinvestments in the heritage sector in important urban zones whether they are metropolises (NewYork Paris) or smaller towns (Bilbao)rsquo
Figure 4
Number of beds supplied by the hotels of the province of Biscay (monthly datafrom January 1992 to December 2004) (source Basque Statistic Institute [EUSTAT])
4000
5000
6000
7000
8000
9000
92 93 94 95 96 97 98 99 00 01 02 03 04
Beds HBiscay
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
460 Debate
International Journal of Urban and Regional Research 302
copy
2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
tourists lsquoKnowledge of foreign languages tourist packages wider range of food onoffer improved and enhanced advertisements strategic alliances between restaurantshotels and tour operators are all now a reality in the sectorrsquo Furthermore lsquothe ICTsInternet booking marketing and so on are creating new opportunitiesrsquo (Del Castillo andHaarich 2004 204) and new schemes of business (reengineering) Film and video-related services as well as advertising agencies graphic arts and publishing haveexperienced an important expansion in recent years but no such effect can be directlyattributed to the GMB itself As far as the art galleries antiquarian shops and art tradersare concerned in Del Castillo and Haarichrsquos opinion although the marketing effect ofthe GMB is said to be significant their sales remain stationary
In short the GMB has generated new tourism and new employment and as a resultadditional fiscal income The aim now is to check whether the public authorities thatinvested in the GMB have really recovered their costly investment and if so the numberof years required to recover it
GMBrsquos return on investmentIn a world of competition for public and private funds to support a range of facilitiesthat contribute to a quality of life the museum fares less well than other publicinvestments for example health care and education or in the private sectormanufacturing retailing and information technologies Investors see direct pecuniaryreturns from their investments in those economic activities whereas they have difficultyin identifying direct benefits from their investments in museums Museums necessarilyrely heavily on the public purse private donors and benefactors
Frey and Meiers (2003 3) suggest that lsquoThere are two types of demand for museumsThe first is the private demand exerted by the visitors These may be persons interestedin the exhibitions as a leisure or as part of their profession as an art dealer Thesecond type of demand comes from persons and organizations benefiting from amuseum but not expressing their demand at the cashierrsquos office This social demand isbased on external effects andor the effects of art organizations on other economicactivitiesrsquo In Europe public authorities support museums because they are consideredto be part of the cultural lifeheritage of the nationcity Most of the museums remainpublic largely financed by taxpayers However public museums that rely almostexclusively on public funds provide zero incentives to minimize costs and generateadditional income as the governments always cover operative deficits The GMB onthe contrary operates under a budgetary rule by which the museum itself must cover arelevant percentage of its operating costs and the regional and provincial publicauthorities complete the remaining percentage At present the lsquoself-financepublicsector supportedrsquo ratio is 7030 This scheme guarantees a market-oriented view of themuseumrsquos personnel making them more sensitive to both the customersrsquo tastes andoperative efficiency Museums operate under increasing returns on scale that is highfixed costs combined with low variable costs As a consequence the fulfilment of thebudgetary rule implies commitment to achieving market volume normally throughspecial exhibitions In the opinion of Frey (2000) this is the type of museum thatgenerates a major impact on the local economy
Since the resources invested in the GMB mostly have alternative uses we shouldcalculate the GMBrsquos ROI The GMB is a public good that is an investment thatgenerates positive externalities for both present and future generations In this sense theROI analysis is limited since it is the yield of net cash flows (all the cash flowsreceived and paid by the promoters of the investment) In this regard the ROI does notcapture the value generated by the GMB in terms of say aesthetics and cultural valueThe ROI solely explains whether the public sector recovers its investment through taxincome
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 461
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The GMB is an initiative of the Basque Government and the Provincial Council8
(Diputacioacuten Foral de Bizkaia) The Basque Public Treasuries paid euro1265 million forthe complete project (building land licensing and operative costs before the openingof the GMB mdash permanent collection and taxes excluded see Table 6 in the Appendix)The crucial question is whether the Public Treasuries will recover their initialinvestment and whether the cash flow generated by GMB will validate the large initialinvestment If this is the case how long will the recovery take The GMBrsquos officialreport in 2004 states that initial investments have already been recovered in the first 6years This ostensibly daring assertion needs to be tested
In order to test this assertion it is necessary to make certain assumptions for thecalculation of the cash flows Some of these assumptions are quite restrictive but I preferto negotiate these limits in order to derive more conservative results and avoid falseconclusions As outlined earlier the GMB was promoted mainly by the regional andprovincial administrations In fact the Guggenheim has become a symbol of Spanishfiscal federalism an emblematic public investment made without any recourse to centralgovernment funds Interestingly at the time the Basque administration and theGuggenheim Foundation New York began negotiations Frank Lloyd Wrightrsquos buildingin New York was being refurbished and the Solomon Guggenheim Foundation neededurgent fund raising The Basque Public Treasuries paid euro159 million (taxes excluded)for the construction start-up costs purchase of paintings and licensing fee for 20 years(Table 6 in Appendix) Furthermore the public budget must also finance GMBrsquosoperating deficits I calculate the ROI of this particular project (GMB) from thehypothetical scenario described in the Appendix The outlay of the cash flows requiresa comparison of two tables in order to appreciate a significant variance between ROIfrom Table 4 (purchase of permanent collection not included) and ROI from Table 5(purchase of permanent collection included) with a ROI of 157 and 109respectively
Viewing Table 5 the results show a positive ROI of 109 However when the netpresent value (NPV) is calculated the results do not match those supplied by the GMBrsquosofficial report of 2004 which states that the initial investment was already recovered inthe first 6 years My calculations on the contrary say that overall initial investment plusthe operative deficit will be recuperated by the year 2006 assuming the conditionsstated in the Appendix are realized and an 8 discount rate9 (Table 4) At this point Iwant to suggest that there is an important error in the calculations executed by theGMB Firstly cash flows must also include both the operational deficits incurred byGMB payable by the Provincial Treasuries of Biscay and the new investments in theGMBrsquos permanent collection of art Secondly there is a methodological elision in theGMBrsquos official report (2004) since positive and negative cash flows must be discountedfor the entire period of the project that is 20 years according to the licensing contractbetween Guggenheim Foundation New York and GMB So although it is clear that theinitial investment will have been regained by the year 2006 (9 years after opening) thereal figures of NPV necessarily include the continual investments made by the museumin order to increase its permanent collection At an 8 discount rate this yearlyinvestment makes a true completed positive NPV unrealistic until the year 2015(Table 5)
8 There are Guggenheim museums in four countries including New York Las Vegas Venice Berlinand Bilbao The Guggenheim Museum Bilbao and the Deutsche Guggenheim Berlin are separate legalentities not owned or controlled by the Guggenheim Foundation
9 The French Commissariat au Plan recommends using a constant 8 per year as the discount ratefor all public investments and most developed countries use a rate between 5 and 8 (Gollier2002 163) In this article to keep it simple I assume that the discount rate is 8 An extendedversion of this article would demand the recalculation of the NPV reconsidering that the project isannually refinanced with short-term interest rates in order to establish a range of plausibleestimates since I feel that 8 is a conservative hypothesis
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
462 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
4R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n n
ot i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g+
Op
era
tive
Co
sts
(euro)
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
t an
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus1
264
95
018
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus17
014
40
minus118
58
372
7
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
324
472
672
minus99
156
53
1
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
1125
83
40
30minus8
016
774
8
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
243
610
57
minus63
58
80
22
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
822
520
20
5minus4
93
96
473
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
207
759
24minus3
727
39
20
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
222
86
94
0minus2
52
329
80
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
424
325
59
8minus1
30
64
125
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
2724
45
39
44
minus17
372
17
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
224
56
68
80
87
99
09
7
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
246
62
93
418
59
30
88
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
247
42
06
027
69
06
92
200
977
812
831
144
58
2minus8
73
48
702
39
44
92
minus63
40
378
248
04
20
336
135
55
7
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
2424
84
93
00
43
96
90
92
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
3224
877
278
512
305
33
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
248
88
05
65
79
57
00
2
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
248
815
43
64
183
58
4
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
731
617
248
57
639
69
94
339
8
2015
732
59
232
85
1635
minus10
429
89
22
39
44
92
minus80
354
00
248
162
3575
26
76
77
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
724
75
72
118
018
58
39
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
65
30
08
88
89
98
132
59
67
37
05
0
RO
I =
157
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 463
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Table
5R
OI
of t
he
GM
B t
o t
he
pu
blic
tre
asu
ries
Pu
rch
ase
of t
he
per
man
ent
colle
ctio
n i
ncl
ud
ed
Yea
rR
est
of
Sp
ain
+Fo
reig
nV
isit
ors
Taxe
sA
dd
itio
nal
Rev
en
ue
du
eto
GM
B (euro
)
De
fici
tG
MB
(euro
)A
mo
rtiz
atio
no
f th
eB
uild
ing
(euro
)
GM
Brsquos
De
fici
t +
Am
ort
izat
ion
(euro)
Inve
stm
en
t in
GM
Brsquos
Bu
ildin
g +
Op
era
tive
Co
sts
(euro)
Pu
rch
ase
of
the
Pe
rman
en
tC
olle
ctio
n
Res
idu
al V
alu
eo
f G
MB
in Y
ear
20
17 (euro
)
Cas
h-f
low
sP
ub
licTr
easu
ry (euro
)
Net
Pre
sen
tV
alu
e a
tan
8
Dis
cou
nt
Rat
e
minus126
49
50
18minus3
23
104
11minus1
58
80
54
29
199
717
88
71
58
718
88
minus99
67
820
23
94
49
2minus7
573
328
minus42
40
00
0minus5
94
144
0minus1
52
135
89
1
199
89
018
7527
56
24
15minus5
48
42
362
39
44
92
minus30
89
74
3minus4
24
00
00
202
326
72minus1
360
745
43
199
99
208
81
293
59
44
1minus5
919
90
32
39
44
92
minus35
254
11minus4
24
00
00
215
94
030
minus120
20
22
86
200
078
75
66
277
84
79
0minus5
818
225
23
94
49
2minus3
423
733
minus42
40
00
020
1210
57
minus10
65
08
233
200
177
190
026
94
93
83
minus68
236
702
39
44
92
minus44
2917
8minus4
24
00
00
182
80
20
5minus9
49
88
60
3
200
272
38
84
259
88
68
5minus7
60
725
32
39
44
92
minus52
127
61
minus42
40
00
016
535
924
minus85
34
00
51
200
374
35
86
277
115
80
minus78
1913
22
39
44
92
minus54
246
40
minus42
40
00
018
04
69
40
minus75
58
98
50
200
48
182
3029
46
58
82
minus75
34
776
23
94
49
2minus5
140
28
4minus6
00
00
00
183
255
98
minus66
422
48
9
200
58
100
47
298
202
71
minus77
60
819
23
94
49
2minus5
36
63
27minus6
00
00
00
184
53
94
4minus5
78
747
42
200
68
019
47
3016
60
32minus7
99
36
44
23
94
49
2minus5
59
915
2minus6
00
00
00
185
66
88
0minus4
99
117
25
200
779
39
2730
50
189
5minus8
233
45
32
39
44
92
minus58
389
61
minus60
00
00
018
66
29
34
minus42
50
04
17
200
878
59
88
308
280
25minus8
48
04
57
23
94
49
2minus6
08
59
64
minus60
00
00
018
74
20
60
minus35
60
90
00
200
977
812
83
114
45
82
minus87
34
870
23
94
49
2minus6
34
03
78minus6
00
00
00
188
04
20
3minus2
92
06
90
2
2010
770
34
73
145
1724
minus89
96
917
23
94
49
2minus6
60
24
24minus6
00
00
00
188
49
30
0minus2
326
48
16
2011
762
64
331
74
96
10minus9
26
68
242
39
44
92
minus68
723
32minus6
00
00
00
188
772
78minus1
775
47
19
2012
755
017
320
383
92
minus95
44
829
23
94
49
2minus7
150
336
minus60
00
00
018
88
80
56
minus12
64
98
64
2013
747
46
732
318
224
minus98
3117
42
39
44
92
minus74
366
81
minus60
00
00
018
88
154
3minus7
924
776
2014
739
99
232
58
92
56
minus10
126
109
23
94
49
2minus7
73
1617
minus60
00
00
018
85
76
39minus3
55
52
33
20
1573
25
92
328
516
35minus1
04
298
92
23
94
49
2minus8
035
40
0minus6
00
00
00
188
162
354
81
75
6
2016
725
26
633
105
50
7minus1
07
42
78
92
39
44
92
minus83
48
29
7minus6
00
00
00
187
57
211
42
07
98
4
2017
718
014
333
510
17minus1
106
50
732
39
44
92
minus86
705
80
minus60
00
00
022
99
616
2224
86
42
05
94
99
43
33
0
RO
I =
109
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
464 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
The financial planning of the GMB has allowed the initial investment to be recoveredin little more than a decade possibly a world record Nonetheless the Guggenheim likeall major museums around the world continues to struggle to seek new sources ofrevenue from governments and donors to balance its books The reliance on ticket salesfrom blockbuster exhibitions for example can generate large revenues for a museumHowever this tends to limit access to the museum for those citizens who prefer to spendtheir money on other recreationalcultural activities that are less expensive The questionof balancing art and investment aesthetics and consumerism will continue to plaguepoliticians artists and citizens all over the world
Final remarksAlthough the initial investment in the GMB logically raised heated discussions thereis now ample proof of positive economic returns that have surpassed early cautiousexpectations These results cast doubt on criticism that challenges the impact of theGMB as an instrument of economic and cultural policy However the GMB caseshould not be uncritically replicated elsewhere since the risks involved in the modelwere high Signature architecture or a dramatic cultural investment does not guaranteeurban redevelopment in itself as some may mistakenly conclude from this article Onthe contrary although the final outcome in the case of Bilbao is positive the GMBshould not be employed as the means to legitimize the instrumentalization ofsignature architecture or extreme investments The success of the museum alsodepends importantly on both the vernacular conditions and on the consistent efforts ofthe Museum Director to continuously innovate and generate activities of interest tokeep the public coming These crucial points are difficult to factor into any graphicanalysis of a museumrsquos ROI but are essential to its development and positiveoutcome
Beatriz Plaza (beatrizplazaehues) Faculty of Economics University of the Basque Country Avenida Lehendakari Aguirre 83 48015 Bilbao Spain
ReferencesBegg I (2002) lsquoInvestabilityrsquo the key to
competitive regions and cities Regional Studies 362 187ndash93
Del Castillo J and SN Haarich (2004) Urban renaissance arts and culture the Bilbao region as an innovative milieu In R Camagni D Maillat and A Matteaccioli (eds) Ressources naturelles et culturelles milieux et deacuteveloppement local (GREMI VI) Institut de Recherches Eacuteconomiques et Reacutegionales (IRER) Universiteacute Neuchatecircl Neuchacirctel
Esteban M (2000) Bilbao Luces y sombras de titanio El proceso de regeneracion del Bilbao metropolitano [Bilbao lights and shadows of titanium The process of regeneration of metropolitan Bilbao] Servicio Editorial Universidad del Pais Vasco Bilbao
Evans G (2001) Cultural planning an urban renaissance Routledge London
mdashmdash (2003) Hard-branding the cultural city mdash from Prado to Prada International Journal of Urban and Regional Research 272 417ndash40
Frey BS (2000) Arts amp economics Analysis amp cultural policy Springer New York
mdashmdash and S Meier (2003) The economics of museums Working Paper No 149 ISSN 1424-0459 Institute for Empirical Research in Economics
Frias MA (1995) Art as a sign of plenitude Paradigms of philosophizing The St Petersburg Association of Scientists St Petersburg
Global Arts Networking Foundation (GANF) (2006) Scholars on Bilbao GANF
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 465
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
Guernica httpwwwscholars-on-bilbaoinfo [accessed 17 May 2006]
Gollier C (2002) Discounting an uncertain future Journal of Public Economics 85 149ndash66
Goacutemez MV (1998) Reflective images the case of urban regeneration in Glasgow and Bilbao International Journal of Urban and Regional Research 221 106ndash21
Goacutemez Uranga M and G Etxebarria (2000) Panorama of the Basque Country and its competence for self-government European Planning Studies 84 521ndash35
Gonzaacutelez P and P Moral (1995) An analysis of the international tourism demand in Spain International Journal of Forecasting 11 233ndash51
Gonzaacutelez S and MV Goacutemez (2001) Reply to Beatriz Plazarsquos lsquoThe Guggenheim-Bilbao Museum Effectrsquo International Journal of Urban and Regional Research 254 898ndash90
Gospodini A (2001) Urban design urban space morphology urban tourism an emerging new paradigm concerning their relationship European Planning Studies 97 925ndash34
Greffe X (2004) Is heritage an asset or a liability Journal of Cultural Heritage 5 301ndash9
Guggenheim Museum Bilbao (2004) Impact of the activities of the Guggenheim Museum Bilbao in the economy of the Basque Country Official report
Hamnett C and N Shoval (2003) Museums as ldquoflagshipsrdquo of urban development In LM Hoffman D Judd and SS Fainstein (eds) Cities and visitors Regulating people markets and city space Blackwell Oxford
Massam BH and B Plaza (2003) The museum as a public good Guggenheim Museum in Bilbao Discussion Paper 55 Department of Geography York University Toronto
McNeill D (2000) McGuggenisation National identity and globalisation in the Basque country Political Geography 194 473ndash94
Plaza B (1999) The Guggenheim-Bilbao Museum effect a reply International Journal of Urban and Regional Research 233 589ndash92
mdashmdash (2000a) Evaluating the influence of a large cultural artifact in the attraction of tourism Urban Affairs Review 362 264ndash74
mdashmdash (2000b) The Guggenheim Museum Bilbao and Basque high cuisine an approach to the transmission of know-how Tourism and Hospitality Management 612 119ndash26
mdashmdash and BH Massam (2004) The Guggenheim Museum Bilbao views on the impacts costs and urban re-development Discussion Paper 56 Department of Geography York University Toronto
Rodriguez A E Martinez and G Guenaga (2001) Uneven redevelopment new urban policies and socio-spatial fragmentation in metropolitan Bilbao European Urban and Regional Studies 82 161ndash78
Strom E (2003) Cultural policy as development policy evidence from the United States International Journal of Cultural Policy 93 247ndash63
Tickell A (2001) Progress in the geography of services mdash II services the state and the rearticulation of capitalism Progress in Human Geography 252 283ndash92
Velasco R (1993) Desafios actuales de la economia vasca [Present challenges for the Basque Economy] Papeles de Economiacutea Espantildeola 55 Fundacion FIES Madrid
Vicario L and PM Martinez Monje (2003) Another lsquoGuggenheim effectrsquo the generation of a potentially gentrifiable neighbourhood in Bilbao Urban Studies 4012 2383ndash400
AppendixI calculate the ROI of this particular project (GMB) for the cash flows under thefollowing hypothetical scenario
1 The cash flows reflected in Tables 4 and 5 correspond to the net income plusdepreciation and amortization calculated from the GMBrsquos income statement Ihypothesize that changes in working capital requirements and gross investment infixed assets are negligible
2 See in Table 6 the costs before the opening of the museum in order to compare withlater costs and benefits
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
466 Debate
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
3 It has to be noted that visitors from the Basque Country may have low multiplyingeffects on the economy Visitors from the rest of Spain and foreigners by contrastmay stay in Bilbao for at least one night and spend money on other activities apartfrom the museum Therefore Basque citizens are excluded from the calculation ofthe ROI
4 I calculate 1 annual decline in non-Basque Country visitors (both Spaniardsand foreigners) from 2005 to 2017 whereas empirical evidence shows that thetrend for foreign visitors staying overnight has increased since the opening ofthe GMB (Figure 5) This hypothesis is adopted to guarantee a less favourableresult
Table 6 Costs of the GMB before opening (October 1997)
Million euro
1 Payment to Solomon R Guggenheim Foundation New York (brand) 1330
Additional services of Solomon R Guggenheim Foundation NY 464
2 Land 721
3 Building
Design architect (Frank Gehry) 870
Executive architect (Idom) 468
Construction of the building and its surroundings 7310
4 Purchase of pieces of art 3231
5 Taxes 721
6 Operative costs up to the opening of the GMB 1487
Total 16602
Source Tribunal Vasco de Cuentas Publicas
Figure 5 Overnight stays of foreign visitors in the Basque Country (monthly dataseasonally adjusted from January 1976 to December 2004) FONSsa mdash overnight stays offoreign visitors seasonally adjusted (source Spanish National Statistic Institute [INE])
0
20000
40000
60000
80000
100000
76 78 80 82 84 86 88 90 92 94 96 98 00 02 04
FONSsa trend
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk
Debates and Developments 467
International Journal of Urban and Regional Research 302copy 2006 The Author Journal Compilation copy 2006 Joint Editors and Blackwell Publishing Ltd
5 The Provincial Treasuries of Biscay estimate additional tax revenue due to GMBthrough inputndashoutput analysis According to their estimates one more non-BasqueCountry visitor generates an additional euro3601 in tax revenues (GMBrsquos 2004 annualreport) Here according to our own calculations we assume that revenues of thepublic treasuries increase by euro3601 for every non-Basque Country visitor and thatthis figure increases by euro0803 per year This euro3601 corresponds to both direct andindirect taxes
6 I restrict the calculation of the discount of cash flows to the 20 years10 in which thecontract signed between the Basque authorities and the Solomon GuggenheimFoundation New York remains valid
7 As regards the residual value of the building in 2017 I assume that the land will beworth the amount paid for it in 1997 capitalized at an annual 3 interest rate thatis euro13416715 I amortize the building in 50 years therefore the residual value ofthe building in the year 2017 would correspond to euro51884172 (with 30 years left)Again I have established a conservative hypothesis
8 As far as the permanent collection11 is concerned if in the year 2017 the GMB wereto sell its own collection of art it would be sold at a residual value probably superiorto the purchasing cost supposing that such purchases had been made rationally Inthis article I assume that the GMBrsquos collection of art capitalizes at a 1 compoundrate quite a restrictive assumption In Table 4 I do not include the permanentcollection whereas in Table 5 the rates of investment on the permanent collectionsignificantly modify my perspective on ROI
9 I also presuppose that the ratio fixedvariable costs is entrenched in the long run thatis I assume the worst of scenarios that the GMB does not adjust total costs accordingto their activity in the long run This hypothesis is again adopted to guarantee theless favourable result
ReacutesumeacuteLa ville de Bilbao srsquoest servie drsquoun museacutee comme moyen parmi bien drsquoautres dereacuteorganiser son ancienne infrastructure industrielle Pourtant lrsquoefficaciteacute de cetteoneacutereuse formule nrsquoest pas toujours eacutevidente Trois grandes questions se sont poseacuteesles effets du Museacutee Guggenheim Bilbao sur lrsquoimage de la ville les incidences sur lesnuiteacutees et les conseacutequences pour lrsquoeacuteconomie locale La premiegravere suscite peu de deacutebatset les deuxiegraveme et troisiegraveme probleacutematiques restent agrave deacutemontrer Le but est de quantifierlrsquoimpact du museacutee sur le tourisme et lrsquoemploi et de calculer son rendement (rendementdu capital investi et valeur actualiseacutee nette) Lrsquoapproche adopteacutee est une analysequantitative de donneacutees statistiques visant agrave isoler lrsquoapport eacuteconomique duGuggenheim
10 The contract between the Basque authorities and the Solomon Guggenheim Foundation New Yorkmay be extended to 75 years However we will limit the calculations to the contract underway thatis 20 years
11 The important constraint of this model is that the Guggenheim Foundation New York retains tightcontrol by supplying the works of art from its own collection and the provision of administrativeand curatorial expertise Furthermore some pieces of art from the core art collection (New York)are subject to mobility restrictions which may limit the efficacy of the GMB In this context thepurchase of its own permanent collection by GMB contributes to diminishing part of the operativerisk of the project in detriment to its financial risk