7.2.2Description of the categories

 

Below, from least to most steered, the categories considered are listed, with a few examples of the resources included. A table summarizing the amounts of resources by category can be found in the original advisory report.1

1 VARIO (2022). Visie op een goede beleidsmix tussen vrije en thematische steun voor O&O in Vlaanderen. Advies 27. https://www.vario.be/nl/adviezen-rapporten/advies-27-visie-op-een-goede-beleidsmix-tussen-vrije-en-thematische-steun-voor-o-o-in-vlaanderen-2 

 

1. Thematically free

This category groups all Flemish R&D funds for which no theme has been imposed by the Flemish government. This includes very diverse forms of funding, which are often not so free in other senses, with for example conditions imposed in terms of (economic) return for Flanders. It includes both curiosity-driven and solution-driven (or supply-driven and need-driven) research and innovation, both for knowledge institutions and companies, both long-term and short-term and at different TRL (Technology readiness levels) scales.

The category includes the budgets for fundamental research and strategic basic research at the FWO, the research part (25%) of the universities' operating allowances from the Education and Training policy area, the BOF funds, R&D support for companies from VLAIO, etc.

 

2. Thematically steered

For all the funds considered under this heading, a theme is imposed by the Flemish Government, to a greater or lesser extent. However, not all thematic resources steer towards a specific objective. This is only the case for the categories 'domain-specific in function of a challenge' and 'public procurement'. Thematic and mission-oriented are thus not synonyms.

Even in the most steering category, a certain degree of freedom remains, in subject matter and methods, among others. To steer even more, other instruments are possible, such as performance pay, which involves making (part of) funding conditional on research progress or results.

2.1 Strategic bundling of bottom-up & top-down

This is the category of least steered, thematic resources. It contains the Flemish R&D resources for the Strategic Research Centres (SRCs) (mainly endowments), with the exception of resources that are even more specific or targeted through the SRCs, such as 'strengthening water research and innovation: via VITO' (see domain-specific in function of a challenge). Each SRC focuses on a specific technology/theme/domain that Flanders considers strategic. The four SRCs are imec (nano and digital technology, since 1984), VITO (cleantech and sustainable development, since 1991), VIB (life sciences, since 1995) and Flanders Make (manufacturing industry, since 2014). The SRCs arose from strengths that grew bottom-up and for which the government made the strategic choice at some point to focus on these specific domains. This enabled centre of gravity formation and a joining of forces to be stronger internationally. SRCs should also play a bridging role between basic and applied research.

The main 'thematic steering' in SRCs was at the time of their establishment, when choices of domains were made. Through the covenants, which set out mutual rights and obligations for a number of years, the Government steers the SRCs towards excellence and valorisation through KPIs, but not thematically. The EWI 2022 Policy and Budget Explanatory Memorandum identifies social impact and marketing as key concepts for new agreement frameworks. However, a large degree of thematic freedom remains within SRCs.1

 

Vlaams Parlement (2022). Beleids- en begrotingstoelichting Economie, Wetenschap en Innovatie Begroting 2022. https://docs.vlaamsparlement.be/pfile?id=1764219
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2.2 Strategic bundling of bottom-up & top-down - more demand driven from the companies

This second category within the thematically steered funds contains the funds for the spearhead clusters, which exist since 2016. These are expected to play a role in societal challenges and specifically in the transition domains. Spearhead clusters align with domains chosen by the government as strategic and for which there are no SRCs. They are large-scale and ambitious initiatives, involving a partnership between companies, knowledge institutions and government, developing and implementing an ambitious long-term strategy and competitiveness programme. There are seven spearhead clusters: (1) Catalisti (chemicals and plastics), (2) Flanders' Food (food), (3) Flux 50 (energy), (4) SIM (materials), (5) VIL (logistics), (6) the Blue Cluster (sustainable economic activities at sea) and (7) Medvia (healthcare). The latter has only existed since 2021 and is part of the impulse programme innovation in health and care.

Before the clusters, similar initiatives existed, first the ‘competence poles’ followed by the ‘light structures’, defined as demand-driven knowledge centres that focused on bundling competences on strategically important themes in Flanders and that also already had a bridging function between knowledge institutions and companies. The activities of these initiatives, and now of the clusters, should on the one hand be technologically/scientifically 'state of the art', but on the other hand also produce applicable results for the companies involved. In other words, the activities should effectively lead to economic valorisation. In addition, the EWI Policy and Budget Explanatory Memorandum 2022 states that additional agreements are to be made with the spearhead clusters on the alignment between their competitiveness strategy and positive societal impact.1

Not included here are resources through the spearhead clusters that are even more specifically thematically driven or targeted, such as for the Moonshot for example (see below). Anno 2021, there are 75 million euro of earmarked funds for the spearhead clusters. The spearhead clusters each have a budget of 8 million euro for which they can submit projects, including ICON and cSBO. These projects are selected by the clusters themselves. They have a lot of autonomy in this and can, for instance, choose to fund academic research. The spearhead clusters can lay claim to what remains of the 75 million euro after distribution through inter-cluster projects, among others. The funds are distributed by VLAIO, under whose responsibility the programme falls.

 

1 Vlaams Parlement (2022). Beleids- en begrotingstoelichting Economie, Wetenschap en Innovatie Begroting 2022. https://docs.vlaamsparlement.be/pfile?id=1764219
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2.3 Domain-specific

The next stage within thematically driven research is the domain-specific research category. This brings together research within certain domains or disciplines that does not fit into a SRC or spearhead cluster. The various initiatives of this category include the Meise Botanical Garden, the Flemish Institute for the Sea (VLIZ) and resources for scientific research at post-initial education institutions and higher institutes for fine arts. Here we consider the initiatives with funding from the EWI and Education and Training policy area (OV) separately from those funded by other policy areas (see next category).

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2.4 Domain-specific other policy domains than EWI & OV

This category includes Flemish R&D resources from policy domains other than EWI and OV, which are used for research that can be considered domain-specific. These are resources for Flemish scientific institutions, certain departmental services or Flemish Public Institutions. Examples are the Institute of Agricultural, Fisheries and Food Research Policy (ILVO), the Institute for Nature and Forest Research (INBO), the Heritage Agency (AOE), etc. Policy support research is also funded from the other policy areas. We consider that here as another separate, more thematically driven category (see below).

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2.5 Domain-specific in function of a challenge

Compared to the category 'domain-specific', an essential additional element of 'domain-specific in function of a challenge' is that from above, from the Flemish Government, certain objectives, solutions for certain challenges are pursued. The Moonshot1 is the clearest or pronounced example of this. Its objectives are "to make the Flemish industry carbon-circular and CO2-lean by 2050 through the development of market-ready innovative technologies in Flanders by 2040". In initiatives other than the Moonshot, the targets are not as explicit. These include the Flemish Policy Plan on Artificial Intelligence and the Flemish Policy Plan on Cybersecurity, amongst others. Notwithstanding that we rank the Moonshot highly here on the thematically driven/top-down axis, there is also an important bottom-up component. For example, the initiative came about through a top-down choice of bottom-up ideas. This category is the most recent category with typical mission-oriented initiatives within it. In the years before 2021, there are hardly any resources or initiatives that fit under this.

 

1 https://moonshotflanders.be/
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2.6 Policy-supporting research

This includes what is considered structural policy research1, and is funded by budgets labelled as R&D budgets. We rate the category as one of the most strongly steered within the thematically driven funds, because it involves research in function of policy questions. All policy domains, including EWI, have such R&D resources. This category contains resources for the (former) ‘steunpunten’ (policy research centres), but also for ECOOM (Centre for Research & Development Monitoring) and KVAB (Royal Flemish Academy of Belgium for Science and Arts), as well as VARIO itself.

 

1 Kennisnetwerk Beleidsonderzoek (KNBO). Structureel Beleidsonderzoek in De Vlaamse Overheid. https://assets.vlaanderen.be/image/upload/v1630480808/Structureel_beleidsonderzoek_in_de_Vlaamse_overheid_se9a8f.pdf    
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2.7 Programme Innovative Public Procurement

This most steered category differs from the other categories within thematically steered funds by the way it is financed. In innovation-driven public procurement (tenders), the government awards a contract for a new type of product as a solution to a well-defined problem. The figures we can include here are only those for the Innovative Public Procurement Programme (PIO) within the Department of EWI, which started in 2016. All organisations in Flanders that must comply with the Public Procurement Act can turn to PIO for advice, guidance and co-financing. Priority goes to the transition domains from Vision 2050, but no sector or domain is excluded. It is estimated that by all public actors in Flanders combined, 30 to 40 billion euro are spent annually. PIO represents only a small part of all public procurement, and the only one labelled 'R&D funds'. On public spending other than through PIO, we currently do not have a good view.

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