The emergence of an innovation system for the solar energy sector in Morocco - PEGNet Workshop "Green and social: managing synergies and trade-offs"
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The emergence of an innovation system for the solar energy sector in Morocco PEGNet Workshop “Green and social: managing synergies and trade-offs” Georgeta Vidican Bonn, 13 March 2013
based on the DIE study “Achieving inclusive competitiveness in the emerging solar energy sector in Morocco” (Vidican, Böhning, Burger, de Siqueira, Müller, Wendt, 2013) © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 2
Outline Overview of renewable energy (RE) developments in Morocco Innovation systems (IS) for sustainability The emerging solar energy sector in Morocco Governance challenges to IS building © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 3
Renewable energy in Morocco
95% of energy needs supplied by imports
Rising electricity demand: quadruple by 2030
Large solar (and wind) energy
resources
Source: MASEN (http://www.pv-
magazine.com/news/details/beitrag/morocco--acwa-selected-
for-ouarzazate-_100008640/#axzz2ve2PO4fJ)
=> Interest in diversifying the energy mix
RE targets set: 2GW solar + 2GW wind + 2GW hydro by 2020
Attracted investment: private sector and concessional financing
1st large-scale solar project broke ground – 160 MW
Several wind energy projects are already developed
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 4Renewable energy in Morocco
But...unchartered territory:
– high level of uncertainty (costs, technology, regional and global
markets, etc.)
– strong lock-in pressures (fossil-fuels, subsidies, etc.)
– tight time frame (e.g. high budget deficit)
– competing priorities (e.g., unemployment, competitiveness)
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 5Renewable energy in Morocco
Key challenge: developing the RE sector such that
technological capabilities are enhanced, competitive
advantages are identified, jobs are created
– Government’s goal: integrate green with social and economic
objectives
Integration of goals depends on:
– dealing with competing priorities and trade-offs
– building alliances with diverse stakeholders,
– enabling systemic coordination across sectors
=> Politics at the core (addressing diverse interests, managing rents)
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 6Renewable energy in Morocco
Addressing these joint goals requires a system level
perspective
Developing a dynamic innovation system (IS)
Yet, low understanding of how sustainable IS emerge and
evolve in developing countries
- limited focus on governance dynamics in IS
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 7Renewable energy in Morocco Main questions: What are the challenges to system-building initiatives for the emerging solar energy sector in Morocco? How do dynamics between different stakeholders support or hinder the development of the sector? © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 8
Renewable energy in Morocco
Results are part of a larger study funded by BMZ (Vidican et al.
2013)
Data:
– 80 semi-structured interviews in Morocco (Feb – Apr 2013)
– Secondary literature
Ministries, state
agencies
(13)
Development
Private sector
cooperation
(39)
(6)
Financing
Business
(8) associations
(4)
Universities &
Research
Institutes
(9)
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 9Innovation system framework
Co-evolution of technologies and institutions
Innovation system:
– “That set of institutions [and organisations] which jointly and individually
contributes to the development and diffusion of new technologies and which
provides the framework within which governments form and implement policies to
influence the innovation process” (Metcalfe 1992)
– A useful way of analysing the development of a sector as it considers not simply
economic perspectives but also permits a social and political view point.
Institutions
Actors and
Knowledge
Networks
Innovation System
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 10Innovation system framework
Source: http://rogerseirug.blogspot.de
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 11Innovation system framework
IS in developing countries (Lundvall et al. 2009): Institutions
Actors and
– Lower knowledge capabilities
Knowledge
– Missing actors and institutions Networks
– Weak links between system components
Hence, the challenge is to: Innovation System
– Set in place necessary dynamics at different levels
– Lay foundations in terms of knowledge and capabilities
– Strengthen linkages between actors
– Align conflicting interests
=> In developing countries “learning system” rather than “innovation system”
(Viotti 2001)
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 12Innovation system framework
Low-carbon development places higher demands on governance–
necessary to disrupt unsustainable pathways and encourage alternative
technological pathways
– Rationale (Stamm et al. 2009, Altenburg and Pegels 2012):
• Overcome multiple market failures
• Build consensus among stakeholders
• Change triggered under time pressure
• Harmonise national and international policy frameworks
=> Stronger role for the state
If the state becomes more important, how should its role be best leveraged
and its capacity strengthened? What implications this has for system
dynamics and the engagement of other actors? How about in non-
democratic political contexts?
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 13Innovation system framework
To assess the governance of the emerging IS in Morocco we focus on:
– Government actions to develop the solar energy sector
– Private sector involvement
– Knowledge sector engagement
– Cross-sectoral initiatives
– Preliminary assessment of interests and power
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 14Government actions
In 2008 the National Energy Strategy
Plan Solaire: US$ 9 billion => by 2015 500 MW of solar (mainly large CSP
plants):
– (a) Institutional level (legislative framework)
– (b) operational level (new organisations)
– (c) developmental level (jobs, industry, R&D)
Large investments were attracted:
Table 1: New investment in RE, by country, 2009-2012 (million US$)
2009 2010 2011 2012
Algeria - - 33 -
Egypt - 923 - -
Iran - - - 136
Iraq 103 - - -
Libya - 132 - -
Saudi Arabia - 15 47 22
UAE 52 20 843 -
Israel 263 355 830 814
Morocco - 8 309 1,898
Tunisia 57 - - -
Source: REN21(2013)
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 15Government actions
(a) Institutional framework
Law 13-09 with focus on large scale electricity generation plants:
– Self-production by industrial investors
– Projects developed by private investors to sell electricity to third parties
– EPC contracts with ONEE (public utility)
– IPPs with long-term PPA with ONEE
No market for small-scale solar installations
– Opposition from private distributers
– Fossil-fuel subsidies
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 16Government actions
(b) Operational structure
Moroccan Agency for Solar Energy (MASEN)
– Competent, powerful, but increasingly vertically integrated --- should seek
cooperative approach
National Agency for Renewable Energy and Energy Efficiency (ADEREE)
– Seeking cross-stakeholder initiatives for market creation
Energy Investments Agency (SIE)
– A redefinition of its role has been made in light of MASEN’s vertical integration in
finance. A better positioning of SIE is needed.
(c) Developmental level
Commissioning of studies to assess socio-economic potential of RE – but
results are not currently integrated in policy/strategy making
Ministry of Industry plays only a marginal role in RE developments
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 17Private sector involvement Only tentative steps towards involving the private sector Market incentives and transparency are necessary to enable companies to engage Cluster initiatives have been created but with limited engagement from the private sector Programmes for facilitating business linkages are limited AMISOLE, the RE industry association, seeking to engage the private sector more actively © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 18
Knowledge creation
Close cooperation between public research organisations and private sector
is important for a well-functioning IS
Yet, currently limited and fragmented engagement
IRESEN (Research Institute for Solar Energy) has been created to bridge the
gap between these two sectors (knowledge & business)
MASCIR (Moroccan Foundations for Advanced Sciences, Innovation and
Research) highly active in attracting funding from the private sector
Several self-organising initiatives / forums / networks / associations
– Academia is searching for a stronger and more coherent participation in the
emerging IS
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 19Cross-cutting initiatives
Limited cross-sectoral initiatives
– MASEN & MEMEE: legislation
– MEMEE & Ministry of Agriculture: solar water pumps
– ADEREE & Ministry of Habitat: solar water heaters
Ministry of Industry and public research organisations have been less
engaged
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 20Governance challenges
Can RE targets be channelled into sustainable IS building,
contributing to enhanced capabilities and economic
competitiveness?
– Need for coordination and cooperation between stakeholders and
integration of objectives into long-term development strategy (Vidican et
al. 2013)
Current developments have been top-down, driven by powerful
actors.
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 21Governance challanges Figure 1: Tentative representation of the most prominent stakeholders and their relative position in terms of importance and influence Source: Own design based on interviews with relevant stakeholders in Morocco, between February-April 2013. © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 22
Governance challenges
Can RE targets be channelled into sustainable IS building,
contributing to enhanced capabilities and economic
competitiveness?
– Need for coordination and cooperation between stakeholders and
integration of objectives into long-term development strategy (Vidican et
al. 2013)
Current developments have been top-down, driven by powerful
actors.
Tendency towards concentration of activities and initiatives likely to
hinder IS formation.
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 23Governance challenges Figure 2: Three models for interaction between a leading firm and an underdeveloped innovation system Source: Barnard et al. (2009: 253) © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 24
Governance challenges
Can RE targets be channelled into sustainable IS building,
contributing to enhanced capabilities and economic
competitiveness?
– Need for coordination and cooperation between stakeholders and
integration of objectives into long-term development strategy (Vidican et
al. 2013)
Current developments have been top-down, driven by powerful
actors.
Tendency towards concentration of activities and initiatives likely to
hinder IS formation.
In spite of decentralisation, Moroccan state authorities remain central
actors in economic and social policies.
Low level of influence of important players translate in limited access
to resources, information, and lack of transparency in decision-
making.
© German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 25Concluding remarks Low-carbon development requires quick action in an environment defined by high uncertainty. While solar energy developments are supported by “the supreme institutional power” in Morocco, decisions can be taken faster. Yet, the challenge for IS building is to balance quick actions with coordination at national level and integration of goals. While several parts of the IS are in place, an integrated approach focused on system building is lacking. Forging coalitions between stakeholders is critical for addressing trade-offs and diverse interests – more research on political economy (e.g. mapping interests and power). The IS literature in developing countries needs to engage more actively with political processes associated with system formation, especially for low- carbon development where the state plays a prominent role. © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 26
Thank you for your attention! Georgeta Vidican German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) Tulpenfeld 6 D-53113 Bonn Telephone: +49 (0)228-949 27-0 E-Mail: georgeta.vidican@die-gdi.de www.die-gdi.de www.facebook.com/DIE.Bonn www.youtube.com/DIEnewsflash © German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 27
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