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Learning to shield Regulatory learning in sociotechnical transitions
Wouter Boon & Sjoerd Bakker
Workshop “Constructing and contesting spaces for low-carbon energy innovation”26-28 November 2013, Eindhoven
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Starting point
Niches and “underconceptualisation” of protection
Embrace emphasis on protection
Learning of actors about protection
Focus on regulation as protection measure
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Regulatory learning
Design of regulation and negotiation
How to deal with new regulation? Question for involved and uninitiated
parties Mastering protective regulations
Regulatory learning as hotspot on relation innovation – regulation
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Theoretical basis
Protection processes (Smith & Raven) Shielding, nurturing, empowerment
activities
Negotiations about shielding regulation involves insiders and outsiders (Garud & Ahlstrom)
Legitimacy plays key role (Scott, etc)
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Characterisation of cases
Characterisation of protection: width: what is protected and what is
not? depth: to what extent is something
protected? tools: how is protection provided? legitimisation: why is protection
warranted?
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Two cases of shielding
Highly-needed medicines
Electric vehicles
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Case 1: high-need drugs (1)
HIV epidemic, orphan drugs
Balancing act ‘unmet medical need versus safety risks’
Accelerated approval (US), exceptional circumstances (EU) schemes
Role of “institutional activists”
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Case 1: high-need drugs (2)
Conditional approvals (EU, 2006) Fast access, strict post-market testing
Width of shield: serious, emergency, rare diseases
Early experimentation… perceived differently
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Case 1: high-need drugs (3)
Ongoing discussion about depth of scheme
“confusion” about benefit/risk ratio and breakthrough character
regulatory agency and regulator differed
solution was less deviant from normal procedure; benefits less clear
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Case 1: high-need drugs (4)
Operationalisation (tools) and legitimisation were problematic:
Risks and uncertainty Medical need not always clear Regulators: ‘escape route’; completion of
datasets and policy termination Pressure and capture; empowerment
and legitimisation of niche protection Firms: difficult to understand rules (what
is expected?); re-evaluate costs and benefits of taking route
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Case 2: clean cars (1)
Societal desire for low- and zero-emission vehicles
Climate, energy, local air quality Broad portfolio of options: biofuels,
natural gas, hydrogen, (hybrid-) electric
Some incremental, some radical Our case: electric in the NL
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Case 2: clean cars (2)
Protective measures “Technology neutral” sticks
Emission norms Technology specific carrots
R&D & demo-project funds Consumer/business incentives Recharging/fueling infrastructure
Protection also from industry, NGOs Each with their own interests and
expectations
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Case 2: clean cars (3)
Protection in NL Width: Low-emission vehicles
(<50 gr CO2/km): EV & PHEV Outcome of negotiations!
Tax exemptions (registration, road-use, company cars for private use), free parking
Living labs (pilot projects) Recharging infrastructure:
Local/regional govs Grid operators
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Case 2: clean cars (4)
Learning about protection
Protection too wide and too deep? Opportunistic adoption? No chargers and no need to charge -
> normal emissions
High societal costs, little benefits Challenge: reduce incentives, but
maintain momentum Diff. between EV and PHEV
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Conclusions
Actors need to learn about new protection measures
Learning applies to a wide range of (insider and outsider) actors
These actors interact and negotiate Regulation is shared product Regulation is delegated (leads to
resource-intensive learning exercise)
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Conclusions
Protection measures on different levels of aggregation
Lower levels are further removed from ‘level playing field’
Regulatory learning // implementation and diffusion of technologies
‘Drifting’ of protection might be shared responsibility