Policy learning in programmanagement, and program

management in policy learning

– THE CASE OF THE “VINNVÄXT”-PROGRAM

Per ErikssonDirector General

VINNOVA – Swedish Governmental Agency for Innovation Systems

VINNOVA’s Mission

• VINNOVA´s mission is to promote sustainable growth by financing needs-driven R&D and development of effective innovation systems.

• VINNOVA integrates R&D in Biotech, ICT, Services, Manufacturing, Materials, Transport, Automotive and Working life.

• The VINNVÄXT-program (”Win Growth”) is one important instrument for supporting growth in functional regions by competition of R&D financing and innovation system development.

Aim of the presentation

• An outline of the VINNVÄXT-program– Designing the program– Implementing the program

• Policy learning and potential for policytransfer – some reflections

GovernmentPublic sector

Business University

Depending Actor Groups“Learning by fighting”

Knowledge based economy

From PPP, Public Private Partnership,To Public Private Univ. Partnership,

i.e. Triple Helix

Triple Helix

What is VINNVÄXT?

• A competition (3 calls, 3+5+? winners)

• The winners receive up to 1 MEUR per year for 10 years

• Regional co-funding of at least as much

• A Triple Helix-based approach– Cooperative Triple Helix based R&D– Three evaluating panels, Triple Helix

PROGRAM DEVELOPMENT

International knowledge transfer International benchmark 5 Pilots Process-support Triple Helix management training

CALL 1

Competition, € 30 million 159 initial proposals 25 development initiatives 3 winners/7 runner-ups The Dahmén Institute

- A process-support organisation

-The national facilitators’ Network

-Triple Helix management training

CALL 2

Competition, € 30 million 23 proposals 5 winners

8 WINNERS

On-going process support: networking, knowledge transfer, coaching, evaluation, etc

CALL 3

Innovation systems in early stages Competition, € 5 million Process support for formation 86 initial proposals 10 development initiatives, 3 mo

preparation Triple Helix management training 26 Final proposals 5 potential winners 2006-8 1-2 full-scale winners 2008

2001 2002 2003 2004 2005 2006

The VINNVÄXT timeline

8 winners, so far…

Ludvika

Falun

Uppsala

Fagersta

Hudiksvall

Sundsvall

Ljusdal

Söderhamn

Härjedalen

Östersund

Kramfors

Umeå

Örnsköldsvik

Vilhelmina

Gävle

Åre

Strömsund

Skövde

Jönköping

Borås

Lidköping

Ljungby

Kristianstad

Karlshamn

Kalmar

Karlskrona

Oskarshamn

Gotland

Västerås

Eskilstuna

Katrineholm

Nyköping

Stockholm

Köping

Örebro

Skellefteå

Norrköping

Växjö

Linköping

Västervik

Nässjö

Vimmerby

Luleå

Överkalix

Kalix

Övertorneå

Gällivare

Pajala

Storuman

Sorsele

Arjeplog

Jokkmokk

Kiruna

Värnamo

Tranås

Älmhult

Avesta

Bollnäs

Lycksele

Arvidsjaur

Mora

Vansbro

Malung

ROBOTICS VALLEY

Most important activities today (for winners/non-winners)

• Creating a structural platform in the region (changing R&D strategies, restructuring incubators, facilitating for commercialisation etc.)

• Organisational development (new organisation, leadership, change management, strategy etc.)

• Trying to mobilise actors internally (in the region) and externally (in the functional innovation system) to strengthen the initiative

• Facilitating for new projects (demo- and commercialisation)

VINNOVA IS PICKING THE WINNERS What are we looking for?

• Existence of a regional partnership and strong Triple Helix leadership with a shared vision and with an ability to prioritise resources/activities/efforts.

• Universities, which profile their education and research, and cooperate with business and society

• An industry with an ability to cluster and identify future growth areas and markets

• A regional government support

Academia Politicians

Industry

Academia Politicians

Industry

Why is VINNVÄXT a good example?

• VINNVÄXT is a strong brand (useful for the initiatives for co-branding)

• VINNVÄXT has attracted new types of applicants/competencies outside the ”traditional” network of applicants

• VINNVÄXT demonstrates that relatively low funding can generate high return

• Many of the initiatives that didn’t win still exists. Some of them are very ”well off” when it comes to financing from other sources – still with an high development potential.

• Many of the initiatives are evolving as important hubs in their region/area of competence/innovation system

• VINNVÄXT demonstrates the need for creating policy initiatives that are long term

General driving forces on a national level - my perspective

• Failure of Regional Policy

• TelecomCity, Soft Center and Ideon experience

• Competition with other agencies

• Bold and long time commitment possible in VINNOVA

General driving forces on a national level

• A growing interest in new theories explaining growth, competitiveness and innovation (e.g. Nelson & Winter, Rosenberg, Lundvall, Porter)

• Long-term economic growth in Sweden continued to be weak despite large investments in R&D (i.e. an increasing awareness that returns from Swedish R&D investments must be higher)

• A growing awareness on the need for policy coherence and co-ordination (a systems perspective)

General driving forces on a public authority level

• VINNOVA was a new public authority with a ”freedom” for testing new programs etc.

• A Director-General with experience from different Triple Helix spheres as well as from a successful regional change process (Blekinge/Karlskrona and ”Telecom City”).

• A number of competent, embedded individuals (staff) interested in developing new methods for supporting regional innovation systems for growth.

Policy learning – designing VINNVÄXT (1)

The importance of:

• having a strategy for communication (i.e. the importance of branding);

• using a unifying concept and a common value-system (Triple Helix);

• long term activities (10 years) for attracting ”new” types of applicants (actor constellations) and new types of competences (e.g. experts and middle management from industry);

• the partnership approach – VINNOVA not only act as a program evaluator, also as a supportive partner;

• internal workshops (and an initial ”open” climate for discussion);

• international benchlearning rather than ”mechanical benchmarking”;

• pilots (i.e. testing a model by interactive learning between the public authority and the initiatives).

• Policy learning from international benchlearning and the pilots:

– The importance of using calls (”If regions are to be competitive, why not let them compete”?);

– The importance of promoting regional leadership;

– The importance of using panels (consisting of actors from all parts of Triple Helix ) when selecting prospects and winners;

– The importance of providing extensive support to potential applicants and the winners.

Policy learning – designing VINNVÄXT (2)

The importance of

• creating a structural platform for learning (e.g. by initiating interactive research, workshops);

• continuous process support (e.g. courses in Triple Helix management, coaching and tools for self-evaluation);

• follow-ups and assessment in dialogue;

• using independent international evaluators not embedded in the regional or national milieu;

• having the ability to re-engineer the program (i.e. to learn and ”un-learn”).

Policy learning – implementing VINNVÄXT

• Learning by writing

– The ability to use different types of analyses, forecasts, indicators etc. as strategic tools and means for communication internally, within the initiative, and externally (i.e. ”learning by writing”)

• Learning by fighting

– The ability to define roles, areas of activity and special interests and in that process not shy away from conflicts but rather trying to solve them by creating new solutions etc. (i.e. ”learning by fighting”)

Policy learning – on the RIS-initiative level

The most important lessons to learn from the VINNVÄXT-

experience

• The existence of a strong regional leadership promoting

renewal

• A shared vision within a specific area of growth

• A functional definition of the region

• The development of robust research and innovation

• The development of strategies and resources for learning

• Knowledge and insight into business and development logic

within the specific area of growth

The most important lessons to learn from the VINNVÄXT-

experience

• Strong commitment on the part of the companies

• The importance of a long term approach

• Almost killed the agency – solved by “learning by fighting”

and supporting friends

• Supported strategy for regional funds from the universities,

scientific academies and national R&D funding agencies

• Changing mindset takes time

• Personal mobility within Triple Helix must increase since VINNVÄXT indicates that it facilitates double-loop policy learning and the use of policy learning as an integrating mechanism?

• Policy learning by ”fighting” (the existing resistance) must be facilitated. A prerequisite for renewal.

• Methods for finding and measures for supporting embryonic innovation systems must be developed

• Successful policy learning is lesson-drawing across (1) time (i.e. own experience) (2) space (other regions) and (3) system (i.e. policy transfer to other sectors). (1) seems by far the easiest and the most common

Policy learning – challenges

Policy learning – Conclusions

Government

Regional Government

Public Authority

Regional innovation systems

• Ministry of Industry

• Low level of policy transfer to other ministries

• Anecdotal and fragmentated policy learning, good examples

• No visible effects

• Positive image of VINNOVA

• Distorted view of VINNOVA’s core business

• No vertical policy learning

• No horisontal policy learning

• VINNOVA and other growth or innovation orientated authorities (e.g ISA, NUTEK)

• Distinct policylearning within certain departments

• No or fragmented learning in the entire authority

• Focus on growth, in-novation and compe-titveness.

• A systemic perspective

• Long-term perspective – from project to process

• No vertical policy learning (up)

• Strong vertical policy learning (down)

• Some horisontal policy learning

• New Triple helix formations for collective action

• Collective action for innovation and economic growth

• The formation of strategic and systemic Regional Innovation System’s Initiatives.

• Strong vertical policy learning (up and down)

• Strong horisontal policy learning

• County Council

• Municipalities

• Policy networks

• Systemic policylearning

• See above • Strong vertical policy learning (up and down)

• Strong horisontal policy learning

WHO WHAT EFFECTS POLICY LEARNING

8 winners, so far…

Ludvika

Falun

Uppsala

Fagersta

Hudiksvall

Sundsvall

Ljusdal

Söderhamn

Härjedalen

Östersund

Kramfors

Umeå

Örnsköldsvik

Vilhelmina

Gävle

Åre

Strömsund

Skövde

Jönköping

Borås

Lidköping

Ljungby

Kristianstad

Karlshamn

Kalmar

Karlskrona

Oskarshamn

Gotland

Västerås

Eskilstuna

Katrineholm

Nyköping

Stockholm

Köping

Örebro

Skellefteå

Norrköping

Växjö

Linköping

Västervik

Nässjö

Vimmerby

Luleå

Överkalix

Kalix

Övertorneå

Gällivare

Pajala

Storuman

Sorsele

Arjeplog

Jokkmokk

Kiruna

Värnamo

Tranås

Älmhult

Avesta

Bollnäs

Lycksele

Arvidsjaur

Mora

Vansbro

Malung

ROBOTICS VALLEY

GovernmentPublic sector

Business University

Depending Actor Groups“Learning by fighting”

Knowledge based economy

From PPP, Public Private Partnership,To Public Private Univ. Partnership,

i.e. Triple Helix

Triple Helix

Policy learning in programmanagement, and program

management in policy learning

– THE CASE OF THE “VINNVÄXT”-PROGRAM

Per ErikssonDirector General

VINNOVA – Swedish Governmental Agency for Innovation Systems