Singularities in the Promotion of the Galician Wind Energy Peripheral Cluster

Abstract

Wind energy can foster industrial diversification as well as employment. This phenomenon does not occur automatically due to the existence of inertias which hinder its development. So it is required public stimulus which triggers the emergence of a new sector. The aim of this paper is to analyse the difficulties in cluster promotion in peripheral contexts in order to develop a comprehensive wind energy industry and service sectors in the north-west Spanish region of Galicia. The methodology uses a broad cluster approach and the evolutionary perspective of the target approach based on the extended life cycle perspective. The results should allow us to obtain an accurate diagnosis of the weaknesses, strengths and the scope of public policy action. © Universidad Alberto Hurtado, Facultad de Economía y Negocios.

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ISSN: 0718-2724. (http://www.jotmi.org)
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1,2 Department of Applied Economics. Faculty of Economics and Business. University of Santiago de Compostela.
Avda. do Burgo, s/n, 15782. Santiago de Compostela. Phone: 134881811695, 234881811647.
e-mail: 2carmela.sanchez@usc.es (corresponding author).
Singularities in the Promotion of the Galician Wind Energy
Peripheral Cluster
Pedro Varela-Vázquez1, María del Carmen Sánchez-Carreira2
Abstract
Wind energy can foster industrial diversication as well as employment. This phenomenon does not occur automatically
due to the existence of inertias which hinder its development. So it is required public stimulus which triggers the
emergence of a new sector. The aim of this paper is to analyse the difculties in cluster promotion in peripheral contexts
in order to develop a comprehensive wind energy industry and service sectors in the north-west Spanish region of Galicia.
The methodology uses a broad cluster approach and the evolutionary perspective of the target approach based on the
extended life cycle perspective. The results should allow us to obtain an accurate diagnosis of the weaknesses, strengths
and the scope of public policy action.
Keywords: wind energy; cluster; public policies; Galicia
Received Mar 05, 2014 / Accepted Mar 03, 2015
146

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J. Technol. Manag. Innov. 2015, Volume 10, Issue 1
Introduction
Nowadays, the promotion of renewable energies is,
gradually, beyond traditional environmental goals and
energy diversication aims. The emergence of an industrial
agglomeration could have benecial effects on the regional
economy, such as a sustained increase in the employment
and production (Blanco and Rodrigues, 2009; Varela-
Vázquez; Sánchez-Carreira and Pereira-López, 2014) or the
development of new technological patterns. Nevertheless,
fostering a cluster framework represents a complex process
in which is necessary the combination of multidisciplinary
policies. It is also essential to overcome institutional and
technological inertias set up by conventional energies (Del
Río & Unruh, 2007).
Wind energy has become one of the most technological
mature renewable energies worldwide (GWEC, 2014). In
spite of the existence of wind resources in many European
regions, wind energy deployment has showed remarkable
differences. In this way, there are several successful
development models, in particular, the pioneer case of the
Danish experience (4162 MW in 2012, including 505 MW
offshore), in which arise a comprehensive framework and an
international competitive industrial sector (Simmie, 2012). In
the case of Spain, there are regions that have similar installed
capacity, but with a smaller industrial related sector, such as
the case of Galicia (Varela-Vázquez and Sánchez-Carreira,
2014) (3.275 MW in 2012). Galicia is a north-west Spanish
region leader in terms of wind energy and hydropower
installed capacity. Then, renewable energies would play a role
of economic drivers with essential positive socioeconomic
effects on the economy. This phenomenon shows different
development patterns as well as key drivers. Concerning
cluster promotion, it is also necessary to emphasise specic
particularities of the institutional and technological contexts,
as well as the role of different rms in a global value chain
when we examine peripheral clusters. In these kinds of
industrial agglomerations, the structural weaknesses need
a different policy shape to solve multidisciplinary problems
(Tödtling and Trippl, 2005; Markusen 1996).
The main aim of this paper is to analyse the scope of cluster
promotion and the singularities of peripheral clusters,
mainly in the Galician wind sector. The theoretical approach
is based on the systemic perspective of Regional Innovation
System (RIS) (Cooke, 2009), as well as in the evolutionary
approach, which makes easier the analysis of sectoral
transitions and the effects of former policies and conditions
in later development.
This paper is structured as follows. First of all the scope of
wind energy cluster promotion and its alternative policies
are analysed. Afterwards, it is highlighted the features of
peripheral clusters and the singularities of the Galician wind
energy. Finally, the conclusions summarise the nal remarks.
The scope of wind energy cluster promotion
Market-led forces as well as public policies are able to
promote the emergence of different kinds of industrial
agglomerations with crucial effects on regional economies,
such as higher employment and growth rates and the
attraction of foreign capital (Markusen, 1996). One of the
main typologies of agglomeration is the cluster, dened
by Porter (1998, p. 215) as “a geographically proximate
group of interconnected companies and associated
institutions in a particular eld, linked by commonalities
and complementarities”. However, there are alternatives
for this geographical perspective, which highlight different
kinds of aspects and dynamics, for instance, supply chains,
critical mass, rm networks, technological linkages and so
on (Nooteboom and Woolthuis, 2005). In any case, a cluster
refers to a set of agents (private or public) with the same
purpose and strong linkages among them derived from
cognitive, organizational, geographical, social or institutional
reasons (Boschma, 2005). In spite of different kinds of
clusters and industrial agglomerations (Markusen, 1996;
Cooke et al., 2007), the positive effects on the economy
as well as external economies of scale for the participants
were emphasised since Alfred Marshall (1920). Thus, there
are important incentives in order to join a cluster, such as
a specialised labour market, particular suppliers or a high
degree of knowledge ows and cooperation.
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J. Technol. Manag. Innov. 2015, Volume 10, Issue 1
as the Danish one, there is a combination of top-down and
bottom-up policies in different stages. The former are more
likely in early steps due to the need of building foundations
(Gregersen and Jonhson, 2008).
Regarding wind energy, common essential endowments
for a cluster emergence in a territory are the existence
of a large home market, plenty of primary resource, and a
signicant level of industrial and technological infrastructure
(Pintor et al., 2006; Del Río, 2007; Lund, 2009). Moreover,
foreign markets are also important to export in later stages
(Lund, 2009). In fact, there is a strong connection between
successful policies implemented in home markets and
subsequent success in global markets (Lewis and Wiser,
2007). It should be emphasised the articulation of different
policies in order to enhance the initial elements existent in
a proto-cluster. In fact, there is no need of a direct relation
between wind ows and cluster deployment. According to
wind resource maps of the European Wind Energy Agency
(EWEA), the geographical dispersion of this renewable
energy is not always related to the industry location.
Even in a country as Spain, this phenomenon occurs in
the opposite cases of Navarra, with a relative low level of
installed capacity, but an important industrial wind energy
sector (Pintor et al., 2006); and Galicia, where a higher level
of installed capacity does not involve a competitive industrial
sector (Varela-Vázquez and Sánchez-Carreira, 2014). Hence,
concerning new activities and sectors, public-led forces are
decisive to foster and facilitate the transition in early stages
of development in which exists high levels of uncertainty
(Rodrik, 2004). In addition, renewable energies have entered
in a market with established conventional energy sources.
These non-renewable energies have a clear dominant
position in several elds, such as technological or social
areas, as well as a dened policy path over time. Therefore,
barriers and inertia can hinder alternative energies
(Del Río and Unruh, 2007).
The Danish wind experience in sectoral promotion
provides a successful lesson, which consists of building a
comprehensive framework. There are several agents working
in the same direction by means of a social consensus in the
main guidelines (Christensen, 2010). Otherwise, structural
weaknesses could arise and the environmental, social and
economic development perspectives will not be achieved
and sustained over time.
Nowadays, the understanding of the main drivers of cluster
emergence is one key research question. Hence, cluster
promotion represents an important tool for governments
and sectoral associations. The concept of cluster promotion
refers to a group of measures and initiatives, both from
public and private sectors, that supports the emergence of
an industrial agglomeration, regarding an idea of maturity in
terms of innovativeness, competitiveness and cooperation
among agents (Fromhold-Eisebith and Eisebith, 2005).
According to these authors, these initiatives could be
top-down or bottom-up. The former refers to policy
schemes usually designed, implemented and nanced by
central decisions from public sector. Sometimes, there is
a secondary aim based on regional development. Bottom-
up initiatives generally involve private actions fostering
cluster interactions and innovative linkages. Likewise,
cluster promotion policies could also be implicit or explicit
(Ib.). The main difference between these both kinds of
measures refers to the degree of ofcial or institutional
consciousness in the moment in which main policy goals and
guidelines were designed.
An important step is to identify pre-existent conditions,
such as industrial structures or institutional setup (the
underlying path-dependence), as well as the present
agents and capacities before implementing any kind of
sectoral promotion (Fromhold-Eisebith and Eisebith, 2005;
Avnimelech and Teubal, 2007; 2008). Thus, identifying initial
agents is essential, among other elements, because they could
play a role as “clusterpreneurs”, that is, central gures which
foster the framework and constitute fundamental nodes. This
initial step could trigger a more efcient use of public funds
to promote existing capacities in territories and market-led
pre-selection of activities with more capabilities. It includes
a crucial initial diagnosis to identify regional advantages
(Avnimelech and Teubal, 2008). The preliminary diagnosis is
also essential in order to decide what kind of main policy
scheme (top-down or bottom-up) should be implemented
by public-led forces or private-led ones. This fact depends
on the number, composition and size of the clusterpreneurs
existent in the exploration stage of a cluster. A considerable
number of actors and interactions would have established
since the early steps because of individual reasons or not
public centralised decisions, i.e. related to another pre-
existent sector or to a multinational conglomerate. Therefore,
it is appropriate to enhance these existing interactions, but
within the private domain. Nevertheless, in the case of a lack
of critical mass or the existence of negative dynamics (e.g.
an excessive dependence on raw materials or incomplete
productive cycles), the role of public sector is crucial to
break development paths. A particular case of this is a
peripheral cluster (see the next section) when there is also a
problem of institutional and technological thinness. However,
in some successful cases of wind energy development, such
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Journal of Technology Management & Innovation © Universidad Alberto Hurtado, Facultad de Economía y Negocios.
J. Technol. Manag. Innov. 2015, Volume 10, Issue 1
Concerning wind energy, there are several examples of
comprehensive cluster structures and peripheral proto-
clusters in the European as well as in the Spanish contexts.
For instance, since roughly three decades, in the north of the
Jutland peninsula (Denmark), it has been settled one of the
most important and successful wind energy clusters in Europe.
Some of the most global companies in the wind market,
such as Vestas, Bonus-Siemens or LM, set their factories and
headquarters in this area. Likewise, in the Spanish region
of Navarra (with 890 MW of installed capacity in 2012),
an integrated industrial and services framework related to
renewable energies was developed with substantial success
in terms of critical mass, technological activities or industrial
and services variety. Nevertheless, there are other regions
with similar or even higher amount of wind energy installed
capacity, but they were not able to promote productive
branches associated with the development of this renewable
energy. Galicia constitutes a clear case of the lack of capacity
to develop an industrial and service sector.
Institutional singularities of peripheral clusters
Cluster promotion in some areas and sectors shows
particular details, which affect the way of implementing
public policies or their effects on the economy. The concept
of peripheral cluster does not only refer to a geographical
issue, but also to a broader notion, which encompasses
more features (Gorenstein and Moltoni, 2011). For instance,
a low level of innovative performance, with low R&D
investment and a productive specialisation based on natural
resources, without forward or backward linkages, constitute
characteristics of peripheral clusters. Moreover, the low level
of rm capacities and critical mass, the lack of infrastructure
and services, and macroeconomic volatility are other kind
of features. A representative macroeconomic volatility is the
continuous change of normative setup (Ib.). This situation
causes nancial instability and lack of legal security.
Peripheral clusters are beyond the idea of “central cluster”,
which is based on decentralised and equal-level relationships
among agents. Traditionally, it does not consider a network
with high centrality or asymmetric dependence as a cluster
(Nooteboom and Woolthuis, 2005). This constitutes a bias,
because it only reects an “idealistic” situation in some
countries and industrial agglomerations, such as the industrial
or marshallian districts. However, it does not take into
account other realities with dominant agents and a high level
of centrality, such as a cluster dominated by multinational
companies in a few productive branches, multinational
subsidiaries with limited regional linkages or public sector
hubs (Markusen, 1996). These peripheral clusters arise both
in developed and developing countries, and their emergence
depends on the pre-existent conditions in those territories,
which generate different kind of congurations in continuous
evolution over time. Regarding its spread, it is essential a
deep analysis of its origins, main characteristics and the
specic policies and tools in order to enhance this kind
of framework. In addition, the set of policies implemented
should be different and, mainly adapted to each situation,
in comparison to general strategies in central clusters or
traditional industrial agglomerations.
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Figure 1. Evolution of the accumulative wind installed capacity in Galicia (MW, 2000-2012).
Data from INEGA (2012)
The Galician wind sector: current situation and
recent evolution
The power to grant authorisations for wind farms and the
regulation competency of the electricity power installations,
transport and distribution correspond to the regional
governments in Spain. The central government keeps the
competencies related to the coordination and planning of
energy policies and the basic legislation of agreements and
administrative authorisations. Thus, it retains the legislative
power over remuneration models (Bacigalupo, 2010).
The regional government is in charge of the regulation
competency of the electricity power installations, transport
and distribution set in Galicia (a Spanish north-west region).
In this sense, the regional government is also responsible for
spatial planning of wind energy, organisation and solution of
controversial issues about wind energy and the authorisation
of new installations. Besides, regional governments could
also implement local content requirement policies through
industrial plans.
The commercial development of wind energy in Galicia
dates back to the mid-90s, when large conglomerates,
such as Endesa, were interested in taking advantage of the
plenty of wind resources. Nevertheless, this development
was previous to the rst Galician Wind Energy Sectoral
Plan (PESG), which was approved in 1997. In spite of that
normative delay, wind energy developed in Galicia signicantly
from 2000 until 2008, turning into the Spanish region with
more installed capacity. Figure 1 shows two different trends
between 2000 and 2012 in Galicia. The rst one goes from
2000 until 2008, characterised by a continuous growth of
installed capacity, higher than 50% in some years. Normative
instability increased in 2008, because the regional bidding
procedure was appealed and there were several regulatory
decrees in the sector.
The economic crisis and the gradual reduction of premiums
to renewable energies of the special regimen also triggered
a strong decrease in the installation of new capacity,
characterising a new phase of slow growth. Nowadays,
Spain does not allow register new installations in the special
regimen, then wind farms owners do not have right to
perceive a premium by the electrical production generated.
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Regional Regulation Main characteristics Validity
Decree 205/1995 Most important legislation in terms of power capacity installed
Industrial plans and local content requirements
1995-2001
Decree 302/2001 Singular wind farms 2001-2007
Decree 242/2007 Public sector participation in wind farms
Environmental protection of special areas
2007-2009
Ofcial allocation of capacity Allocation of 2325 MW
Bidding procedure appealed
2008
Law 8/2009 No chance of public sector participation in wind farms
New taxes per wind turbine
Environmental Compensation Fund
2009-at present
Ofcial allocation of capacity
New stakeholders
Bidding procedure of 2325 MW
No progression
2010-at present
Table 1. Main characteristics of regional regulations and bidding procedures in Galicia.
Note: Many megawatts installed after 2001 were in the shelter of the Decree 205/1995.
Data from own elaboration
Table 1 shows the main regional legislations and regional
bidding procedures in Galicia. The rst decree (1995)
introduces the concept of industrial plans and the local
content requirements. The main aim was to enhance an
industrial sector related to wind energy, but the lack
of administrative control hampers this goal (Montero
et al., 2010). The next regulation (2001) developed the
singular wind farms. This kind of installations enables local
stakeholders (such as municipalities, landowners and so on)
to participate in wind farms. However, the success was really
limited in terms of stakeholders and power capacity.
The aforementioned instability arose after several radical
changes in regional legislation. In fact, Table 1 shows that
there were two different legislations and two bidding
procedures between 2007 and 2010. The former decree
(2007) highlights the public interest in wind energy through
public sector participation in the wind development. There
was also bidding procedure linked to this decree, but it was
appealed in 2008.
The new regional government developed another legal
framework in 2009 which leaved the idea of public
participation in wind farms. Albeit, one of the most crucial
factors which makes easier the shutdown was the total
change of stakeholders between the two ofcial allocations
of power capacity, i.e., some wind farm developers had
received in 2008 signicant amount of installed capacity and
the next year they hardly received new capacity.
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The role played by public administrations in order to
regulate Galician wind sector and foster its development
was focused only on increasing the installed capacity,
setting aside industrial or environmental aims, such as the
protection of special green areas (Montero et al., 2010).
Likewise, the lack of administrative control of the fullment
of the industrial plans and environmental controls reduced
substantially the positive impact of the wind development
on the socioeconomic framework (Ib.).
One of the techniques that examines the level of
development and mainly the competitiveness of a sector
in the international context is the Diamond of National
Advantage (Porter, 1998). This diagram, which examines
the sectoral competitiveness, constitutes a systemic view
of the advantages and disadvantages of the components of
one sector. There are four reciprocally factors interrelated,
which strengthen or weaken the industrial competitiveness.
The rst one refers to the factor conditions, such as the
existence of large natural endowments used by the sector,
the existence of qualied workforce, technological and
transport infrastructures, among others. Furthermore, the
demand conditions, mainly the composition, preferences
and its proportion, play an important role to characterise
the context where agents interact. Another key factor
is the existence of auxiliary industries and internationally
competitive related sectors. Hence, the presence of
international suppliers leads to boost an efcient and
fast supply of inputs. Moreover, the existence of close
relationships with international competitive suppliers
benets the adoption of standards, innovative dynamics and
the transmission of knowledge. Finally, the fourth factor of
the Diamond is the rm strategy, structure and rivalry.
Following this methodology, we elaborate a diamond for the
Galician wind sector (Figure 2), which shows the strengths and
weaknesses. In addition, it emphasises development patterns,
the lack of key elements to enhance the technological catch-
up and possible elds for public policy intervention in order
to boost the emergence of a wind cluster.
Concerning the set of agents in the wind sector, the main
weaknesses are highlighted. Firstly, there is not established
any manufacturer of wind turbines; therefore, there is
a strong dependence on foreign designs and patents.
This situation places the industry in a technological weak
position. Likewise, the presence of multinationals is limited
to the manufacturing of components of lower added value
and logistic activities, which reduces the positive effects
on the region. In this sense, this phenomenon causes a
reduced innovative performance and innovation patterns
dependent on suppliers (Varela-Vázquez and Sánchez-
Carreira, 2014). A possible solution would consist of
developing a technological centre with public participation
to overcome this technological barrier and allow the access
to the market. A public technological centre could solve this
problem through coordinating actions with private rms.
Its role is crucial because the industrial subsector does
not have its own business association. The EGA (Galician
Wind Energy Association) is focused only on wind farm
operation activities.
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Figure 2. The Diamond of National Advantage for the Galician wind energy sector.
Data from own elaboration
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In addition, there is a progressive loss of industrial rms
due to the wind slowdown and the effects of the economic
crisis on the wind farms funding since 2008. This situation
constitutes a loss of industrial capacity and potential supply
bottlenecks given a future increase in the wind installed
capacity in Galicia.
Other weakness related to the wind sector consists of
the lack of university degrees or professional training
focused on wind energy. The presence of wind energy
in academic programs is only concentrated on specic
subjects in master curriculums at the Galician universities.
Likewise, there is a decit of employees with particular
professional proles (Ib.).
Another weakness refers to the limited implication of the
nancial sector in its development. The role of the Galician
nancial system in the wind sector is reduced, mainly due to
the support of wind farm companies, with a poor role in the
remaining subsectors.
With regard to the institutional area, the perspective is also
worrying, because of the strong normative instability. It is
due to the common changes of direction in the regulation
of the wind sector and, even, the current shutdown
bidding procedure (Regueiro, 2011). Equally, the failure
to meet the commitments with public administration by
wind farm owners constitute a worrying factor due to
its effects on the sector development and, in particular, in
the Galician wind industry (Montero et al., 2010). These
commitments force to undertake a total investment in the
sector (including a minimum percentage undertaken by
Galician rms), the establishment of an installed capacity
and industrial investment plans, such as the settlement
of new factories. Furthermore, the social acceptance of
this renewable resource is under threat due to different
problems, such as the land economic assessment and the
limited participation of local agents (Regueiro, 2011). The
social acceptance constitutes a determinant factor in some
successful development models, as in Denmark (Gregersen
and Jonhson, 2008).
Thus, in order to carry out the sectoral competitive
diagnose, it should be adopted a systemic view, with several
drivers causing positive or negative feedbacks. Nowadays, the
constituent elements of the cluster show some bottlenecks
that are delaying the emergence of a potential wind cluster
in the region.
It is also decisive to examine the role played by multinational
rms within a global value chain, because it is complicated
to develop a comprehensive structure without foreign
stakeholder in the industrial as well as in the technological
elds. This phenomenon becomes even more essential
when Foreign Direct Investment is more important in
quantitative termsin wind energy rather than foreign trade
(Kirkegaard, Hanemann, and Wescher, 2009). This is due
to the combination of high transportation costs and raw
materials and relative low share of labour costs (Kirkegaard,
Hanemann, and Wescher, 2009; Elola, Parrilli, and Rabellotti,
2013), among other factors. Then, wind energy follows
a regional hub structure according to the proximity-
concentration hypothesis (Markusen and Venables, 2000).
However, there are some components provided globally
by few suppliers, such as the case of bearings and some
electrical equipment (EWEA, 2009; Kirkegaard, Hanemann,
and Wescher, 2009; Lema et al., 2011).
A possible solution for the current situation of the Galician
wind sector could be the combination of supply-side and
demand-side policies. Concerning the former ones, it would
be necessary to increase FDI attraction, mainly heavy in-
house wind turbine components, the emergence of auxiliary
domestic industry and the diversication in technological-
proximity rms. This combination could make easier
overcome possible supply bottlenecks, especially during
the rst development steps. With regard to demand-side
policies, it may be essential to enhance the domestic market
by means of legislative stability and long-term prospects in
terms of installed capacity development.
Final remarks
Public promotion of renewables energies faces institutional
as well as technological inertias and barriers, which might
hamper a sustained development and consolidation. Wind
energy stands out as one of the most mature renewable
energies and the development of this energy source can
trigger benecial effects on the economy, beyond the
traditional environmental and energy diversication goals.
In this sense, there are several remarkable examples of
successful wind energy development models around Europe
in which there are a signicant emergence of international
competitive industrial agglomerations. However, in some
cases, structural weaknesses constitute additional barriers
to these developments. This is the case of the Galician wind
peripheral cluster. In these cases, it should be necessary to
implement a combination of supply-side and demand-side
policies in a multidisciplinary basis.
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Concerning the Galician wind sector, the existence of high
levels of legislative volatility, some features of enclave industry
and the recent industrial offshoring represent important
challenges for cluster promotion. Then, policy agenda has to
be designed taking into account these singularitie,s which
are typical features of regions with low level of industrial
critical mass and innovation performance. This situation
demands measures which enhance the regional absorption
capacity by means of boosting labour skills, industrial
standards, technological transfer, among others. In addition,
it is essential to combine the close interaction between
multinational rms and domestic auxiliary rms due to
particularities of the wind global value chain. Hence, the
challenge is to upgrade the Galician wind energy sector
overcoming internal barriers and integrating the sector into
the international dynamics.
155

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