Select Committee on Scottish Affairs First Report


INWARD/OUTWARD INVESTMENT IN SCOTLAND

THE STRATEGY

General

96. Over the last few years, Scottish Enterprise has reacted to the changing circumstances by re-examining the way in which it operates, and by developing new strategies. In terms of its method it has moved away from, as it put it, working behind closed doors and 'coming out with highly analytical academic treatises which we then tell people to follow'[150] to engaging people in the thought processes right from the start, sharing information and trying to work alongside the people on whom they depend for delivery. The new strategy involves being more even-handed between inward investors and indigenous firms; it recognises the crucial importance of moving Scotland up the value chain; and it makes use of a tool which it describes as 'the cluster' to attempt to achieve these ends. In the new strategy, inward investment becomes a method not a goal.

97. Early fruits of this approach were initiatives on the business birthrate and the commercialisation of science research. These were born out of studies designed to identify the problems facing the Scottish economy and to develop co-operative methods of solving them.[151] The latest report is into Scottish global companies (see paragraph 25).

98. Consonant with the aim of moving Scotland into higher skill and value adding activity and away from the image of a 'branch-plant economy' is the goal, or dream, of attracting research and development facilities; such facilities are not only of high value in themselves, but they are less vulnerable to disinvestment than simple assembly plants. This is an area where so far Scotland has been relatively unsuccessful (see paragraph 20). The Scottish Office admitted that 'for a period of time we have rather misled ourselves that there were free-standing R&D or pure research organisations to be had, that you could actually on a greenfield site bring in an international corporation which would build a factory and put all their top boffins in just to do research',[152] but nonetheless hope that 'if our marketing and selling is good enough we will spot them when they do arise and make a good case to them'. There are a few such free-standing projects, and the UK is generally attractive to them, most have gone to Southern England.[153] More realistically, they seek to identify the characteristics of subsidiaries which allow them to become attractive to their parent organisations as locations in which research, design and development can be done.[154] Scottish Enterprise have identified about 45 overseas plants which might come into this category.[155]

Clusters

99. One of the rare relatively few free-standing research and development projects which has been identified and won for Scotland is Cadence, the centre-piece of the Alba Project in Livingston which is itself the flag-ship of the 'cluster' strategy. According to the Scottish Enterprise document 'The Clusters Approach', 'a fully formed cluster is a diverse, dynamic, integrated economic organism which is founded in a particular geography and technology. Its focus is usually one or more exporting companies but what makes the difference is the family of players gathered round that. Typically, these will include not merely players but suppliers, customers and competitors. That means associated companies, but it also means utilities, financial institutions, research institutes, universities, further education colleges and other public organisations. A cluster, in other words, is a sophisticated micro-economy'.[156]

100. Scottish Enterprise told us that the name and understanding were new but that the concept was not: 'we did the base research for this in the early 90s when Scottish Enterprise was set up'.[157] According to the 'Clusters' document, 'there is a growing body of evidence to show that many of the world's most powerful regional economies are driven by clusters, each surrounded by a thriving economic infrastructure'.

101. Bob Downes of Scottish Enterprise explained the concept further: 'The concept here is that if you work at the linkages between the industries and the companies within those industries that are in that cluster, the small companies, the large companies and also the supporting institutions which mean our research institutes, the universities, our colleges, our education system, you focus on to the major priorities that you need to attend to in strengthening and deepening any particular industry through the cluster approach. ...What emerges from that process ... is an action plan that is shared within Scottish Enterprise across the network but also outside Scottish Enterprise, so that you get a relationship between what the FE colleges are prioritising for training in the future and how the universities are prioritising their research so that there is a link between what the companies need developed in design applications and how they relate to the universities'.[158]

102. The clusters approach enables Scottish Enterprise to take a broader view, which helps to identify missing pieces of the jigsaw: 'For example, if you were working only with food companies and you are helping them to get better at what they are doing in a business sense, helping them to get closer to markets or whatever, you might miss the fact that the real constraint for the food industry is something to do with farming or with transport'.[159] The example of the importance of the freight capability of Prestwick to the competitiveness of the electronics sector throughout the whole of Scotland was also cited.[160]

103. Inward investment is an integral part of the clusters approach. Ray Macfarlane said 'arguably, some of our strongest clusters have been created through inward investment, semiconductors and electronics generally being that, oil in Grampian being another. As far as inward investment is concerned, when we do a cluster map, when we analyse the cluster, who are the members of it and what are the important linkages, we then can also highlight the gaps'.[161] The clusters approach, then, is a tool to help Scottish Enterprise to target more accurately the type of company it seeks to attract; four main cluster types had been identified in 1998 so far; semi-conductors, software, food and oil and gas[162] though mention was subsequently[163] made of others, especially in marine technology and the creative industries (see paragraph 105).

104. The Committee visited the site of the Alba Project, an interesting example which makes use of the Scottish legal system which makes it possible to integrate existing items of intellectual property faster than can be done elsewhere.[164] Won against competition from Singapore, Israel and Ireland (with Malaysia also in the field),[165] it is centred on an investment by Cadence Designs Systems, a California-based company which 'is currently expanding its business to undertake chip design for IT clients around the world using System on a Chip (SOC) technology. This next generation technology is still under development but, in essence, it aims to speed up the chip design process by using existing blocs of Intellectual Property ... from around the world and integrating them into the new chip...the Alba Project will be a campus based design complex focusing on SOC technology. It will consist of Cadence ... the Scottish Institute for Systems Level Integration (a course developed jointly by four universities)... an Intellectual Property Exchange [Scottish law being particularly favourable to this which is vital in a field where time horizons are so short] ... a Shared Resource Centre and related and supporting companies' which it is hoped will be attracted.[166] Apparently Scotland had not been on the original list of possibles but the company had contacted Locate in Scotland after receiving marketing material relating to Scotland's semi-conductor industry;[167] little help had been received from other agencies, mainly because none was needed.[168] The project represents a major collaborative effort between a number of Scottish players. These include four universities which are combining their forces to train the necessary staff. When up and running Project Alba is forecast to provide 1800 highly-skilled, highly-paid jobs, though only about 200 are yet in existence. It is of course a high-risk project[169] but all those witnesses who were in a position to speak of it did so with admiration.

105. The service industries have a major part to play in Scottish Enterprise's new strategy. Witnesses talked of some clusters being 'more overtly service—in other words with less production of physical goods [including]...the creative industries... That is a cluster group... Tourism is clearly very important for Scotland and is overtly a service industry. So are financial services. So are educational services'.[170]

106. In keeping with its intention to remain flexible, Scottish Enterprise does not plan to concentrate on clusters to the exclusion of all else: 'We still see it as the remit of Locate in Scotland to attract companies and businesses into areas which have high unemployment. That remains a target and a priority for inward investment'.[171] We note that some countries which have successfully targeted inward investment like Singapore, have deliberately avoided low-value projects, but we agree that to the extent that such are still available they should still be encouraged.

107. It is early days and it remains to be seen how successful the 'clusters' approach will be in practice. Although Project Alba was well-regarded not everyone was as convinced about the clusters strategy as a whole as Scottish Enterprise; HIE suggested it was 'a form of marketing branding'.[172] To the extent however that the concept encourages a comprehensive approach to the problems of encouraging economic development in an area and further to 'embed' inward investors it is clearly to be welcomed. We recognise, however, that such very high-technology projects are inherently high-risk, and that some failures should not be taken as proof that the strategy is flawed. In this context we note the comment of the Executive Director of 3i who told us that he had once been asked how many failures he had had in a certain year and on replying 'none', had received an answer implying that he had not taken enough risks.[173]

Embedding inward investors

108. A key question, becoming increasingly urgent in a world economic climate which encourages mobility, is how inward investors can be encouraged to remain in Scotland, to increase the value added, to increase local sourcing and, more particularly, to re-invest. 60 per cent of new investment by foreign-owned concerns is now further investment and re-investment is responsible for 45 per cent of jobs created or safeguarded.[174] Locate in Scotland, and Scottish Enterprise more generally, attach a great deal of importance to this, but are not always in a position to influence the outcome, particularly when local managers may have little say themselves.

109. Once companies have been attracted to Scotland, Locate in Scotland continues to provide aftercare facilities. The aftercare team in the Locate in Scotland home division has recently been expanded to about seven people; the more important clients have aftercare provided by a designated official, the rest are shared throughout the team. Local Enterprise Companies are also heavily involved. The aftercare continues indefinitely; as an example of the variety of help available, Locate in Scotland in the USA cited helping IBM in Greenock to get work permits for German-speaking Swiss workers; help with planning applications has already been mentioned. It is clear that the aftercare provided is crucial to the strategy of embedding inward investors in the local economy, and we recommend that the agencies involved will continue to attach the highest importance to this function.

Learning from the competition

110. As previously stated, the Republic of Ireland has always been Scotland's 'arch enemy'[175] in terms of inward investment. Mrs Macfarlane hoped that as Scottish Enterprise went further down the line of looking for 'tailored' 'bespoke' projects which specifically suited the Scottish economy, the difficulty of putting 'clear, blue water' between the two would recede'.[176] This remains to be seen.

111. Scottish Enterprise has wisely tried to learn from its strongest European rivals, getting together annually in an informal group with the North and South of Ireland, the Welsh and the Dutch who, like the Irish, have adopted a very focused approach.[177] A bench-marking project has been carried out to try to understand the strengths of the Irish project and the IDA; the greater degree of focus Scottish Enterprise is now adopting is one of the fruits of the approach.[178]

Education

112. Witnesses were unanimous about the importance of education to the Scottish economy, both in terms of attracting inward investment and of the indigenous industrial base.

113. There is no doubt that the excellence of Scotland's educational system has been a major factor in attracting inward investment in the past; many witnesses told us that a major factor determining where foreign direct investment went was the availability of a skilled work-force; HIE among others told us how Scotland had benefited from people's interest in 'quality of labour and reliability of labour and educational and skills level of labour',[179] while it was claimed by the CBI Scotland that, 'Scotland leads the way at all levels from vocational qualifications to degrees. Indeed, one of Scotland's major exports has been highly-skilled graduates'.[180] Education is also vital to the success of Scotland's indigenous industrial base.

114. It is not enough to have excellent universities unless their output can be harnessed for the wider benefit of Scotland. This is not a uniquely Scottish problem; we heard in Virginia of the problems of bringing together to their mutual benefit a university culture whose roots are in the middle ages and whose time-scale is based on university terms and a technological one which thinks in web-hours and in which 'instant gratification is too slow'. The Republic of Ireland has also faced the need to link university excellence to foreign investment.[181] To its credit, Scottish Enterprise has faced this problem through its inquiry into the commercialisation of the science base. Ray Macfarlane explained: 'we recognised that in Scotland we have very successful very important universities responsible for world-class research, but that world-class research is not carried through to the [Scottish] economy... We took an inquiry approach again by trying to find out how this was more successful elsewhere ... It is important to the universities to be successful in research but it is not so important to them—or it was not then—that the research should be commercialised here... There was also a feeling that while the universities were rewarded for their research per se they were not rewarded for the commercialisation of that research ... academics and business people had very different views of each other... Finally there were felt to be various infrastructural and financial inhibitors to moving forward'.[182]

115. Following the commercialisation study, Scottish Enterprise has evolved a strategy for encouraging the commercialisation of university research. In the first instance, they have tried 'to raise awareness of commercialisation as an issue' and the opportunities that exist for the universities. They are encouraging Scottish companies to employ graduates because if they are not used to doing so 'then they are not used to working with universities and using university research'. Work is being carried out, too, on the infrastructure for collaboration between universities and business: 'one organisation which has been set up is Connect which works to bring together the academics, business people, financial advisers and so on. Just by creating that collaborative environment, that does spin off ideas and get a lot of energy working, driving towards commercialisation. We have done a lot to improve spin-outs of university by encouraging the teaching of entrepreneurship, management studies and so on in colleges and universities so that people who start up in business out of universities are more capable of succeeding... We have also done a lot of work to, for example, fund research studies, fellowships and so on in particular areas'.[183] Scottish Enterprise feel that their strategy has so far been successful in raising awareness and they now feel able to move on to do more work with companies. Other initiatives include University Challenge and a programme designed to introduce children to the idea of entrepreneurship.[184] We hope that these initiatives will help to address not only the failure to profit from research but also the low rate of business births referred to in paragraph 15).

116. The ever-changing world demands an ever-changing range of skills and also an unprecedented degree of adaptability of the workforce. As The Scottish Office put it 'the issue is not so much about having a stock of the appropriate skills, but having a workforce that is able to adapt and add to its skills and a culture in which people are prepared to do that and have a kind of expectation of changing careers two or three times in their life ... and the kinds of institutions that are able to provide it. I think the extent to which...the education institutions have been able over the last few years to respond to industry needs by producing new training courses adapted to particular skills or even to the needs of particular companies and to do that at very short notice has been very impressive'.[185] In this context, the example of Cadence, where four universities have combined their resources to introduce an MSc in system on a chip design, is very encouraging.

117. Despite Scotland's past success at providing a skilled work-force, there is no room for complacency, and we were warned that 'skills shortages are already evident in IT, management, engineering and construction and could impact on the prospects of Scotland in the future'.[186] Language skills are also in short supply. The relatively high proportion of the economically active population (in Scotland as in the UK generally) which belongs to the older age groups presents significant problems of training and re-training.

118. We hope and expect that the Scottish Executive will continue to attach great importance to education for economic development.


150  Q 1301. Back

151  Q 295 et seqBack

152  Q 44. Back

153  Evidence, p 93. Back

154  Q 44. Back

155  Evidence, p 93. Back

156  The Clusters Approach, Scottish Enterprise, SE/1542/Mar 98. Back

157  Q 1304. Back

158  Q 1302. Back

159  Q 1304. Back

160  Q 131. Back

161  Q 1306. Back

162  Q 416. Back

163  Q 420. Back

164  Evidence, pp 98-100. Back

165  Q 439. Back

166  Evidence, p 98. Back

167  ibid. Back

168  Q 440. Back

169  Q 433. Back

170  Q 1312. Back

171  Q 1320. Back

172  Q 418. Back

173  Q 1097 Back

174  Evidence, p 7. Back

175  Q 1316. Back

176  Q 1318. Back

177  Q 1011. Back

178  Q 1316. Back

179  Q 369. Back

180  Evidence, p 131. Back

181  Q 1003. Back

182  Q 1297. Back

183  Q 1297. Back

184  Scottish Enterprise Annual Report 1996-97, p 13 Back

185  Q 167. Back

186  Q 369. Back


 
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Prepared 30 June 1999