TA-Institutionen und -Programme

The first report on Technology Assessment (TA) in Finland was published in 1976. Today it seems that - after twenty years of increased but scattered activities - a more permanent footing for TA may become a reality.

Institutional difficulties

Inspired by the foundation of the Office of Technology Assessment (OTA) in the USA, the first study on the assessment of the impact of technology abroad, and its implications for Finland, was commissioned by the administration of Finnish science and technology in 1973. The purpose of the study was also to propose ways of organizing technology assessment in Finland. However, the report which was published in 1976 left the question of institutional organization of TA unanswered. The report found that TA fell within the auspices of the public sector, but no solution was reached on whether to defer it to the Office of the Prime Minister or to the Ministry of Trade and Industry. From the beginning, there was a conflict over the socio-political significance of TA as opposed to the technological viewpoint.

Later S&T policy developments did not solve this problem. In policy documents, government decisions and reports to the Parliament similar attention was paid to TA and related activities and to the promotion of technology. During implementation of decisions and policy recommendations, however, the latter part of the policy - the integration of technology with the economy - was much more successful. It can be referred to as the 'strong development line' of Finnish technology policy, whereas its counterpart - assessment and impact analysis - forms the 'weak line'.

The problems in implementing policy statements about the social and environmental impacts of technological development and how the impacts should be assessed, were no doubt related to the lack of institutionalization in this area. Whereas technology development proposals were built on existing research and other activities, there was no comparable ready-made basis for impact analyses. The 'weak line' remained weak, thus making the integration of social, environmental and technological policy extremely difficult in practice.

Attempts to improve continuity in TA

In the late 1980s, several attempts were made to strengthen technology policy's 'weak line'. An expert committee for the organization of futures studies also included TA in its work. However, the plans for a research centre at the Academy of Finland based on the networking principle did not materialize. In 1990 the Academy reviewed the development of science and technology studies with the aim of establishing a unit devoted to the study of science and technology as well as science policy. Concrete steps were not taken even in this case.

uThe increasing amount of TA and related projects, expert committee work and other activities had, after all, strengthened the professional base and also improved the conditions of the 'weak line'. However, a lack of what might be termed 'institutionalized interests' clearly hampered the development. Consequently, the integration of social, environmental and technology policy aspects into a comprehensive, socially-oriented technology policy is still impeded by a range of factors.

Nevertheless, there are a few signs which promise a possible change in this history of 'non-institutionalization'. The Technical Research Centre of Finland (VTT) established a Group for Technology Studies in 1992. Together with the Research Institute of the Finnish Economy (ETLA), the group prepared a national programme for technology studies. Since the beginnging of 1995, the implementation of the programme has had the cooperative support of researchers, universities and other research and R&D funding organizations.

Another example of improved continuity is the new Act on Environmental Impact Assessment Procedure, which came into force in September, 1994. The aim of the act is to promote assessment of environmental impacts and public participation in planning and decision-making. In the EIA procedure, environmental consideration is integrated into the existing planning and permit procedures. The main tasks in the near future relate to promoting the effectiveness of EIA and integrating EIA principles with strategic level planning and decision-making. As a result of the Act, some 15 plans are under scrutiny in March, 1995.

The task of investigating environmental impacts is given to the developer. The developer will prepare an assessment report in which information about the project and its various alternatives is presented, with a comprehensive evaluation of their environmental impact. The citizens and authorities in the affected area will take part in the procedure and express their thoughts on the impacts to be studied and later on the assessment report itself.

The EIA Act forms a basis for future development work both at the national level and in cooperation with other countries. In Finland, the responsibility rests with the Ministry of Environment. The other ministries will direct and develop environmental impact assessment in their respective spheres of competence. The Finnish Environment Agency will act as the expert authority in charge of developing environmental impact assessment.

At the parliamentary level there has also been discussion about incorporating TA activities in the work of Finland's Parliament. The idea has been advocated by the Finnish Society of Scientists and Members of the Parliament - TUTKAS, based on the examples of some other European countries. As the first concrete step, a small appropriation of 100 000 FIM has been included in the Parliament's own budget for 1996 for preparations of future parliamentary TA activities.

There have also been some recent project-based activities which have shed light on TA-related issues. They can also be seen as indications of the increasing need for monitoring and assessing future perspectives as well as analyzing interlinkages between technology, economy and society. A few examples are given below.

Mapping Finland's future

As a natural result of the deep economic recession in Finland in the 1990s there has been a heightened interest in monitoring and assessing future prospects of the country. SITRA (the Finnish National Fund for Research and Development) in particular, has had an important role as the catalyst of these activities. In fact SITRA's main task is to promote the exploitation of new technology by investing in young high-tech companies. It also commissions research that aims at generating information about the interaction between technology, economy and society.

In January, 1994, in cooperation with public agencies and private organizations, SITRA began an extensive project of Finland's scenarios. The aim of the project was to develop mechanisms for scenario building to aid political decision-making and to develop tools of strategic management for companies and public authorities. The final report was published in March, 1995.

The report describes and analyzes five potential scenarios of ten to fifteen years into the future. In each scenario there is a different organizing force which drives social and economic development forward. The names of the scenarios give an impression of the respective driving force: 1) World of Difference, 2) Centres and Peripheries, 3) Master Plan, 4) Money Tech, and 5) After the Fall.

The scenarios were conceived based on the answers to the following questions: What are the phenomena and problems which lead to integrating and disintegrating development paths? What kind of critical conflicts may arise? How would these conflicts be controlled and resolved? What kind of political mechanisms are needed that can find the balance between convergent and divergent interests?

The report does not recommend any of the scenarios because a scenario does not qualify as a strategy. However, it is important to be able to orient oneself in all the scenarios and to discover opportunities for renewal and development. Furthermore, it is stressed that it is absolutely vital to avoid falling victim of aimlessness.

Another study, financed by SITRA and carried out by ETLA, looks at the competitiveness and future growth prospects of the Finnish industry, based on Michael E. Porter's theory of the competitive advantage of nations. The final report has just come out. The study identifies eight industrial clusters classified as strong (forest), semi-strong (basic metals and energy technology), and potential or emerging (telecommunications, welfare and environment). Two of the clusters are characterized as defensive or latent (construction and foodstuffs).

The study summarizes the results of 60 reports on the development and prospects of the eight clusters. The comparative advantage of Finnish industries has been moving from capital- and resource-intensive branches to those driven by know-how and technology. However, close to two thirds of the export revenues are generated by the two traditionally strong clusters - forest and basic metals. The fastest growing industrial clusters are telecommunications, welfare and environment.

Finland on its way to becoming an information society

In January 1995, a national strategy for the information society was approved by the government. Finland's national strategy is expected to affect all aspects of public and private sectors, reaching homes and individual citizens as well. The work has benefited from the popularity of the American-born Information Super Highway concept as well as from the Bangemann report and the subsequent decisions made by the European Council concerning Europe's path towards the Information Society.

Parallel strategy work has been made in Finland, most notably in telecommunications, education, culture, and health and welfare, with reference to information technology and networking. Briefly, the priority of actions is: to provide a strong impetus for the development of public information networks, to encourage innovative application of information and communications technologies in all areas of the public and private sectors, to develop modern information network services to strengthen the competitive position of SMEs, and to improve the conditions for growth in the information industry.

Finally

All in all, the brief description above illustrates how the role and status of TA has strengthened in recent years in Finland. This has prepared Finnish researchers as well as the users of TA results to contribute to European Cooperation in technology assessment as well as in the evaluation of science and technology policy options.
(Esko-Olavi Seppälä & Tarmo Lemola)

References:

Hernesniemi, H.; Lammi, M. and Ylä-Anttila, P., 1995: The Competitive Advantage and Future of Finnish Industry. Helsinki, ETLA. (In Finnish)

Lemola, T. & Seppälä, E.-O., 1987: Technology Assessment - Finland, in: Technology Assessment, an Opportunity for Europe. The Hague: Dutch Ministry of Education and Science, 37-63.

Loikkanen, T. & Seppälä, E.-O., 1994: Towards a Social Orientation in Finnish Technology Policy, in: G. Aichholzer & G. Schienstock (eds.) Technology Policy. Towards an Integration of Social and Ecological Concerns. Berlin/New York: Walter de Gruyter, 323-347.

Ministry of Finance, 1995: Finland's Way to the Information Society. The National Strategy. Helsinki: Printing Centre.

Ruokanen, T. and Nurmion A., 1995: Finland and Possible Worlds. Helsinki: SITRA/WSOY. (in Finnish)

Science and Technology Policy Council of Finland, 1993: Towards an Innovative Society. A Development Strategy for Finland. Helsinki: Printing Centre.

Esko-Olavi Seppälä
Chief planning officer for the Science and Technology Policy Council of Finland
P.O.B. 293, SF-00171 Helsinki, Finland
Tel.: +358 0 134-171
E-mail: esko-olavi seppalaMbl4∂opm vn mailnet fi

Tarmo Lemola
Director of VTT Group for Technology Studies
P.O.B. 1002, SF-02044 VTT, Finland
Tel.: +358 0 456-4250
E-mail: tarmo lemolaBgj7∂vtt fi