A shift from funding to development can be compared to a losing team switching from an offensive to a defensive strategy when the real issue is they shouldn't be playing the game at all and they certainly shouldn't be on that pitch. In other words if we are to move to development then the wider context of the arts needs to change and not just the intent and funding tools of an already hard pressed Arts Council.
The arts are facing a raft of challenges created by the alleged decline in audiences, by new technologies, by rising costs, and by shifts in economic ideologies; these challenges demand a reappraisal of the role of the arts in our society, of the relationship between the arts and the state (and the economy) and an understanding of the changing intellectual framework in which the debate on the arts and “the cultural industries” is carried on. We really don't need to be rearranging the deck chairs again.
(It's been suggested to me over the last few months that the problem is further exacerbated by a lack of understanding and belief in - at the most senior levels - the artists and the art produced - but that's another story).
This shift toward development is informed (as nearly everything is) by the Arts Act, in particular the phrases “stimulating public interest in the arts, promoting knowledge, appreciation or practice of the arts, or improving standards in the arts”. But all of these are educational activities and really should be returned to that portfolio at the earliest opportunity. Even if the Arts Council ceased funding all of its clients and tried to run programmes to meet these objectives they would have very little impact without the co-operation and integration of the educational system (which is also under enormous pressure).
I would agree that audience development based on community involvement is an essential component of any plan but audience and arts production must be developed together and that is one of the big challenges. There is no future in developing an audience for a product, service or experience that either does not exist or cannot attract and retain an audience, and conversely there is no point in developing a product, service or experience for which there is no audience. The dependency model of state funding deployed over the last twenty years has created a situation for the cultural industries where their principal customer is the Arts Council, and their efforts are all turned toward winning that customer, despite its ever-decreasing purchasing power. The side effect of this is that the cultural industries have put less time into developing and working with their audience than they have into creating approved art.
For example, it should be possible for an arts project to be debt financed with that debt underwritten by the arts council over several years, and if funded by the Council then the council should share in the rewards if that project is commercially successful.
The problem with the current arts funding model is that money is perceived to leave the government coffers and never come back. It does of course come back in direct and (punitive) indirect taxation but optics are everything. For example the €12 Billion corporate tax that Apple managed to avoid paying is not seen as funding - but that is precisely what it is. A development approach needs to understand the many, many ways that funding can be accessed.