Using the Mission-oriented Innovation System (MIS) framework

Tom Coenen, Klaasjan Visscher, Leentje Volker | Civil Engineering & Management Contact: t.b.j.coenen@utwente.nl

Introduction

The Dutch government has set the goal for a Circular Economy in 2050 As a resource-intensive sector, infrastructure is an important player to make the transition So-called transitions require many changes and innovations to happen

• Transitions require not only novel technologies, but also social, cultural, institutional and organizational aspects need to change throughout the system to transform towards a Circular Economy

• Transitions are co-evolutionary, non-linear, multi-decade, multi-actor, open-ended and normative change processes

• Stimulating the transition through policy, governance and management interventions should focus on addressing the root causes and lock-ins rather than symptoms, which requires systemic analysis.

The aim of this research is to is to reveal the systemic barriers to transitioning towards a circular economy in the infrastructure sector by analyzing the Dutch sector in transition and seeking an understanding of the circularity transition beyond single changes and solutions

Research approach

• Sectoral analysis through review of grey literature and a heterogeneous set of in-depth interviews

• System analysis using the Mission-oriented Innovation System (MIS) framework contains three major parts:

1. problem-solution analysis to define the mission and the challenges it addresses as well as the solutions to do so

2. structural analysis to reveal actor constellations, institutions and boundaries.

3. functional analysis to study the system developments and dynamics using seven key system functions.

• Use the MIS analysis to reveal systemic barriers and their causalities

Results

The Circular Economy mission is contested within the sector, both regarding the problems and solutions and its boundaries are close to the sectoral ones The infrastructure sector is characterized by the project-oriented and public nature Traditionally, the sector is considered conservative and resistant to change The functions are summarized below

Function Performance

F1 Entrepreneurial activities

Even though the CE theme is widely shared across industry, the actual initiatives in practice are still low in number and impact

Moreover, the main focus is on technological pilots and experiments, rather than processual and organizational changes

F2 Knowledge development Huge steps have been made in the development of circularity knowledge However, some themes are still underdeveloped, such as distance-to-target knowledge, as well as knowledge on the tactical level

F3 Knowledge diffusion

F4a Problem directionality

F4b Solution directionality

F4c Reflexivity

F5 Market creation and destabilization

Despite a relatively high willingness to share circularity knowledge through showcase examples and network events, access to relevant knowledge is challenging, especially for newcomers Also, cross-project knowledge diffusion and learning between projects and organizations remains problematic

There are several (policy) initiatives aimed at aligning the CE mission with societal problems Nevertheless, the perception of CE is rather contested and highly sector-specific In addition, the relation with other missions, such as sustainability, is perceived divergently

Several solution directions are in a fair stage of development, but there is still a lack of consensus on the priorities between those solutions This exploration is delegated to the market, rather than being top-down directed Yet, public clients play a significant role in the solution directionality through their purchasing power

The existing knowledge infrastructure and distance-to-target knowledge are insufficient for reflexive governance on circularity

However, there are major current developments in these aspects The circularity strategy is continuously adapting and evolving to new developments and insights on problems and solutions

The main instrument to steer markets is the purchasing power of public clients Also, a lot of effort is being put in experimenting with novel business models, circularity-included procurement, and increasing the minimum CE requirements Nevertheless, those do still insufficiently apply to conventional projects, which still make up the largest part of the works executed

F6 Resource (re)allocation The allocation of funds for circular initiatives are increasing but insufficient However, a greater challenge is the lack of capacity in terms of circularity-focused employees and experts to adapt (non-circular) processes and practices

F7 Creation and withdrawal of legitimacy

Generally, the legitimacy of circularity is high throughout the sector, but its priority is still too low compared to e g , the energy transition or traditional infrastructure values such as traffic hindrance

The resulting barriers and their causalities are illustrated in the figure on the right-hand side of the poster.

Recommendations

• Most barriers have an organizational character. Focus policy on facilitating circular behaviour and processes rather than circular technological innovations and aim for systemic change rather than single fixes.

• The understandings of the meaning of Circular Economy in Dutch infrastructure are much more divergent than generally assumed. In each circular action, it should be made specific what societal challenges are addressed by the specific intervention.

Complexity and contestation CE concept (F2/F4b)

CE contestation cycle

Difficult monitoring and mission governance (F4c)

Divergent problem and solution space (F4a/F4b)

Difficulties with long-term funding (F6)

Low priority of CE theme (F4a/F4b)

Lack of long-term perspective on direction of CE (F4b)

Low market initiative (F1)

Little room for fundamentally new solutions (F1)

Resources aim at specific pilots rather than structural change (F6)

Low capacity for implementing CE (F2/F6)

Low availability of straight-forward CE knowledge (F3)

Lack of adopting lessons from pilots (F3)

Innovation cycle Knowledge diffusion cycle

Insufficient knowledge in practice (F3)

Slow mplementation of CE in organizations (F1)

Difficulties with unsolicited proposals (F5)

Prescriptive procurement methods (F5)

Procurement aims at proven technologies (F5)

D = Demand-driven

S = Supply-driven

Lack of coordination and infrastructure for knowledge (F4b)