Transformative Mission-Oriented
STI Policies – development of apolicy approach and its
implementation in Europe

The Tokyo Foundation for Policy Research

Wolfgang Polt
Joanneum Research - POLICIESInternational Workshop on “Implementing
Transformative STI Policy and Future
Challenges in Japan and Abroad”
Webinar
20 September 2023

Missions – a concept with a history▪ “If we can land a man on the moon, why can’t we solve the problems of theghetto?” (Richard NELSON, The Moon and the Ghetto. An Essay on Public
Policy Analysis. 1977)▪ “The use of science and technology policies to achieve environmental goals constitutes a newfocus for technology policy. Superficially, this requires a return to the emphasis in the 1950s
and 1960s on public goals that were met through mission-oriented projects. However, there isa fundamental difference between older mission-oriented projects, for example nuclear,defence, and aerospace programmes, and new projects to support environmentallysustainable development. (Luc Soete & Anthony Arundel, Eds.: An integrated Approach toEuropean Innovation and Technology Diffusion Policy – A Maastricht Memorandum, 1993)

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Missions –a stylized history

3Key characteristics of transformative and accelerator missions

Source: Wittmann et al 20204

Key characteristicsof transformative
and accelerator
missions

Category
Scope

Characteristics of transformative
Characteristics of accelerator missions
missions
Systemic scope, requiring innovation
Mainly centred onto scientific and/or
and change in technological, economic, technological as well as economic
organisational, institutional andaspects.
behavioural terms

Level of complexity anduncertainty

High levels of complexity anduncertainty about both problem
definition and specification of solutions(“wickedness”)

Moderate levels of complexity anduncertainty regarding problemdefinition and specification of possible
solutionsTarget definition andtime frameManagement approach

Difficulty in defining clear targets andtime horizons, often long-termOpen-ended, experimental andadaptive management of multiple
recursive transformation pathways

Possibility to define clear targets andmid-term time horizons
Roadmapping and planning-type project
management

Range of actors

Broad range of multi-actor, including
research, industry, government, civilsociety, citizens

Focus mainly on research and industry(sometimes with involvement of single
sectoral actors)

Source: Polt & Weber 2023 (forthcoming) adapted from Kuittinen et al. 2018; Wittmann et al. 2021

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Key characteristics of transformative and accelerator missions
Goals / Orientation

Examples‚Science / BreakthroughMissions‘Aiming at scientific breakthroughs
Human Brain Project,sometimes, but not always with view to the Quantum Flagship, (Researchpotential applicationon) Ebola, COVID Vaccines‚Technology / Accelerator‘– Missions

Realizing functioning complex solutions,which need concerted and massive
application of resources

Apollo/Artemis-Mission, civil
nuclear powerplants, TGV,Concorde, most recently:
projects of the type ofImportant projects ofcommon European Interest(IPCEI) (e.g. Chips Acts,
Battery research, ‚Clean Steel‘)‚Transformative Missions‘

Change of existing (large-scale) sociotechnical systems, involving social,technological, organisational andinstitutional innovations

German ‚Energiewende‘,Transport/Mobilitätswende‘,sustainable and secure water
management (NL)

‚Umbrella-Missions‘

Initiatives that follow over-arching goals,
including parts which are missions in theproper sense (even of different sorts)

German High-Tech-Strategy,
global CC research, Adaptation/ Mitigation

Source: Polt & Weber 2023 (forthcoming) adaptedfrom Kuittinen et al. 2018; Wittmann et al. 2021

Type of Mission

Findings from historical case stduies on the conditions for thesuccessful implementation of transformative MOIP
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Has to include application and diffusion in the desgin of the policy(especially in the technology accelerator/ transformative types),

Has to include sociale innovation
Has to ensure coherent application of instruments and means(policy mix)Must have reflexive mechanisms built in
Needs strong ‚political ownership‘,strong operational and political governanceand widespread buy-in of acteurs…taken all together, MOIP calls for a substantial overhaul ofgovernance and policy capacities (especially for, but not exclusivelyfor transformative missions)
Source: JIIP 2018, Polt et al 2021

Objectives of EU Missions
under Horizon Europe until 2030
8Mission CANCER: Improving lives of 3 million people through prevention, cure and care
Mission CLIMATE: Support 150 regions and communities to become climate resilient
Mission CITIES: 100 climate-neutral and smart cities
Mission SOIL: 100 living labs and lighthouses to lead the transition towards healthy soils
Mission WATERS: Restore our oceans and waters…to be translated into national objectives, measures and impact

TRAMI – the project to create formats for sustained
learning and collaboration on missions..

EMIN• European Mission Network• Intended to be sustained and link to EU decision making processes

MAPPING• Data base and survey• Monitor the implementation of the missions

MLE• Mutual Learning Events• Flexible, varying topics, user oriented / driven

EMIF• European Mission Forum• Addressing broader stakeholder groups

9Competinggovernanceapproaches

State-centric▪ Missions with clear goals
and targets▪ Market creation and publicfinance as key mechanisms▪ Entrepreneurial State plays
proactive role in early highrisk phases▪ Comprehensive policy mix

Bottom-up▪ Open-ended „wicked“challenges, with unclear
problems and solutions▪ Niche-based experimentation, learning andgeneralisation▪ Enabling role of government
and temporary protection

State-sceptical▪ Stress key role of private
entrepreneurs▪ Contest ability of the state tolead change processes▪ Restrict government to an
enabling and regulating role
▪ Market-based search forsolutions

Ideal-type models to draw upon in a pragmatic fashionSuitability of the models depends on the types and characteristics of the missions inquestion
Political cultures and policy styles influence the inclination towards the different models

10Assessment of theadvancement of missions„Mission readiness“ is uneven▪ Some countries and regions have set up mission
governance structures and programmes already; others
only about to start

No single best model▪ Trajectories of national political systems matter; missions
need to be embedded in and aligned with existing
structures, institutions and initiatives, including pre-existing
national missions

Need for alignment▪ Need for EU missions to be aligned and synchronised withpre-existing strategies, initiatives, and even missions on thenational and regional leveland synchronization

STI and policy trap

▪ Mission-oriented policies need to go beyond STI policy(”whole of government”), and beyond policy circles.
Involvement of business and citizens still to bestrengthened in the individual missions.

11Governance challenges
in practice▪ Policy coordination▪Multi-level from European to local▪Horizontal with sectoral policies▪Vertical between ministries and implementing agencies▪Temporal of policy mixes over time▪ Drawing on existing structures vs. building new ones (“mission agencies”)▪ Definition of clear targets vs open-endedness of ‘wicked’ challenges▪ Balancing bottom-up experimentation and learning vs. top-down goaloriented guidance and planning
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Ways ahead▪ Invest “patient” public and private capital into the missions
and give them time to develop and mature▪ Broaden the scope of missions from an STI focus towards a“whole-of-government” approach▪ Endow the actors with appropriate resources and capabilities
to engage in institutional capacity-building with a long-termview▪ Selection of missions in the future should reflect the senseof urgency needed for their timely and successful
implementation.

▪ To learn more about the project and its partners, visit ourWebsite: www.trami5missions.eu▪ To learn more about EMiN
Website: https://www.trami5missions.eu/about-emin▪ Stay informed about current activities, suscribe to the TRAMI
Newsletter (registration on the website)▪ Connect via LinkedIn (just look for #TRAMI)▪ Or get in touch with me directly: wolfgang.polt@joanneum.at

AddendumCase studies of MOIPsTitleCountryThematic area

Type

Level

Timeline

Active and Assisted Living
Programme (AAL)EU

HealthProgramme

International

2013-2020

Cancer Moonshot

US

HealthInitiative

National

2016-2023

Circular Flanders

Belgium

Circular economy

Initiative

Regional

2012- 2020

Clean Air London

UK

Climate change /HealthInitiativeCity

1999 –ongoingHigh Tech Strategy (HTS)Germany

Reindustrialisation

Policyapproach

National

2006 –
ongoing

Hydrogen Society

Japan

Energy andtransport

Policyapproach

National

1991-2040

Security

Programme

National

2005-2020

KIRAS – SicherheitsforschungAustria(security research)

Case studies of MOIPs
Title

Country

Airbus

Type

Level

Timeline

Initiative (private)International

1967-

Apollo ProjectFrance, Germany,
Transport
Spain and the United
Kingdom
US
Aerospace

Programme

National

1961-1972

Brain Initiative

US

HealthInitiative

National

2013-2025

Concorde

France, United
Kingdom
Netherlands

Transport

Initiative (private)International

1962-2003

Security andresilience, climatechangeProgramme

National

1937-2050

e-Estonia

Estonia

IT/Digitalisation(multi-sectorial)

Policy approach

National

1997-current

Electric vehicle initiative

NorwayTransport

Policy approach

National

1989-2025

Energiewende

Germany

Energy, climatechangePolicy approach

National

2010-

Human Brain ProjectEU

HealthInitiative

European

2013-2023

New Energy Vehicles(NEVs)

ChinaTransport

Policy approach

National

2001-2020/2025

Delta Plan / Delta
Programme

Thematic areaPerceptions on Mission-oriented Policy

Source: Polt, Schuch, Weber et al (2019)

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An example of a national Governance Structure: Austria

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Governance-Strukturen of the WG „EU-Missions“(est. per decision of the FTI-Task Force from 29. April 2021)

FTI
Task ForceSteering of FTI Strategy 2030

Arbeitsgruppe

Co-ordination

Implementation ofEU-Missions

EU-Missionen

CancerClimateCities

OceansSoilAustrian governance of EU Missions
Ministries of Defence, Agriculture, Digitalisation, ..

Working Group „EU Missions“Office (Support)
EU Mission Boards

EU Project „Coordination ofcomplementary actions“

EU Mission Groups

ERA Policy Agenda

Strategic ProgrammeCommittee Horizon Europe

Advisory Board
Foresight & Citizens

Advisory Board
Strategic IntelligenceOECD „MOIP Project“Mission Management Group

Mission Cancer
Action Group

Mission Climate
Action Group

Mission Cities
Action Group

Mission Waters
Action Group

Mission Soil
Action Group23

An initiative for coordination of Efforts of Missions‘
implementation:
the TRAMI (TRAnsnational cooperation on the Missions) project25 (26) partner from 16(17) MS
Duration: 2Q2022 - 2Q2024

Architecture of the TRAMI project24

Architecture of the TRAMI project25

25 (26) partners from 16(17) MS, mostly administrations and agencies tasked with the implementation ofmissions
Duration: 2Q2022 - 2Q2024
Expected Outcomes (i.a.):Shared vision for Mission implementation at the level of MS and AC
Multi-level core network of engaged MS/AC with a tailor-made governance, co- operation models, roles
and responsibilities
Map of effective governance approaches and effective instruments for implementation
Mutual learning toolbox, knowledge exchange and mutual learning events, co-developed use cases
Knowledge platformReferences
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GASSLER, H., POLT, W., RAMMER, C. (2008): Priority Setting in Technology Policy – Historical Developments and Recent Trends. In: Nauwelaers, C.
Wintjes, R. (Eds.) Innovation Policy in Europe, Edward Elgar, Cheltenham, pp. 203-224
JIIP (Joanneum Research/Tecnalia/TNO/VTT & DTI / VVA) (2018): Mission-Oriented Research and Innovation. Inventory and characteristics ofinitiatives. Project Report for the European Commission. Brussels March 2018 (https://publications.europa.eu/en/publication-detail//publication/3b46ce3f-5338-11e8-be1d-01aa75ed71a1/language-en)
KATTEL, R., MAZZUCATO, M. (2018): Mission-oriented Innovation Policy and dynamic capabilities in the public sector. In: Industrial and Corporate
Change, 2018, Vol. 27, No. 5, 787-801
KUITTINEN, H., POLT, W., WEBER, K.M. (2018): Mission Europe? A revival of mission-oriented policy in the European Union: In: RFTE – Council for
Research and Technology Development (Ed.): RE:THINKING EUROPE. Positions on Shaping an Idea. Vienna, September 2018, pp. 191-207
LARRUE, P. THE DESIGN AND IMPLEMENTATION OF MISSION-ORIENTED INNOVATION POLICIES: A NEW SYSTEMIC POLICY APPROACH TO ADDRESSSOCIETAL CHALLENGES. OECD SCIENCE, TECHNOLOGY AND INDUSTRY POLICY PAPERS. February 2021 No. 100
MAZZUCATO, M. (2018): Mission-Oriented research and Innovation in the European Union. A problem-solving approach to fuel innovation-ledgrowth. European Commission. Brussels, February 2018
MAZZUCATO, M. (2019): Governing Missions in the European Union, European Commission, Brussels, July 2019
MAZZUCATO, M. (2021): Mission Economy. A Moonshot Guide to Changing Capitalism.

References
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NELSON, R. (1977): The Moon and the Ghetto. An Essay on Public Policy Analysis. New YorkMEISSNER, D, POLT, W.; VONORTAS, N. (2017): Towards a broad understanding of innovation and its importance for innovation
policy. In: The Journal of Technology Transfer, 2017, vol. 42, issue 5, 1184-1211 DOI: 10.1007/s10961-016-9485-4
POLT, W. , SCHUCH, K., WEBER, M., DALL, E., UNGER, M., SALOMON, N. (2019) Debating Impact and mission-orientation of R&I
Policies, Forthcoming in: „fteval Journal for Research and Technology Policy Evaluation“

POLT, W., WEBER, M., BIEGELBAUER, P., UNGER, M. (2019): Matching type of mission and governance in mission-oriented R&Ipolicy. Presentation at EU-SPRI Conference, Rome, June 2019
POLT, W., WEBER, M., BIEGELBAUER, P., UNGER, M. (2019): Matching type of mission and governance in mission-oriented R&I
policy. Presentation at EU-SPRI Conference, Rome, June 2019
POLT, W., PLODER, M., BREITFUSS-LOIDL, M., DAIMER, S., JACKWERTH, T. ZIELINSKI, A. (2021) Politikstile und Politikinstrumente inder F&I-Politik. Studien zum deutschen Innovationssystem | Nr. 7-2021 Herausgeberin: Expertenkommission Forschung undInnovation (EFI) DOI:10.13140/RG.2.2.21709.77283
WITTMANN, F., HUFNAGL, M., LINDNER, R., ROTH, F., EDLER, J. (2020): Developing a Typology for Mission-Oriented InnovationPolicies. Scientific support for the Hightech-Forum of the German Hightech-Strategy. Karlsruhe, January 2020