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The theme of cluster formation has recently become a key leitmotif in federal and regional programs of social and economic development. In this article we will attempt to identify the most typical problems arising in connection with the application of the cluster-oriented approach in strategic documents.
Natalya Trunova, head of project direction, CSR “North-West”:
The term “clusters” is used to refer to a group of industrial enterprises (a network of buyers and suppliers) producing a commodity or a group of commodities and located at a certain area. A focus on a certain commodity group is an issue of extreme importance. For example, the cluster currently formed in Russia’s south is definitely a grains and oilseeds cluster rather than an agricultural cluster. As a rule, the industry-wide approach makes it difficult to implement concrete steps for provision of support to the cluster.
The Concept for the Long-Term Social and Economic Development for Russia up to 2020 approved by the Resolution No. 1662-r of November 17, 2008, envisages “formation of industrial/territorial clusters (at least, 6 to 8), targeted at high-tech enterprises in priority economic sectors with concentration of the clusters in urbanized regions; formation of industrial/territorial clusters in poorly developed areas targeted at advanced processing of raw materials and application of new technologies for energy production”. It is important to note that the document fails to explain the reason for creation of no more than 6 to 8 clusters or their belonging to a specific industrial sector.
Development of clusters is often set as a priority task in regional strategies of social and economic development. Some of regions have adopted separate programs for development of clusters or have created organizational structures for their development. For example, Novosibirsk Oblast has elaborated and adopted steps for development of a biopharmalogy cluster, Penza Oblast has adopted the concept of the program for development of a forestry cluster.
Problems and Solutions
There is a number of problematic zones, connected with application of the cluster approach in Russia. First, the absence of an assessment of a potential market of a cluster. In cluster approach the emphasis should be made not at the existing system of organization of production (a significant but not a determining factor), but rather at the appraisal of markets where companies of a certain territorial unit are positioned. Application of the cluster approach makes it possible to define markets’ borders and to determine position of a territorial unit (city, region etc.) in these markets. It is the market with its scale, trade pattern, territorial and corporate structure which sets the pace for organization of industrial production on a certain territory.
Incorrect assessment of a market or of its borders leads to making wrong decisions and taking wrong steps by regional and municipal authorities. Among the typical mistakes is limitation of cluster borders by borders of a RF constituent entity (or a group of municipal units) – an unacceptable practice for a number of clusters (like the forestry cluster that covers more than five RF constituent units or the grains and oilseeds cluster in Russia’s south that has its center in three regions – Rostov Oblast, Krasnodarsky Krai and Stavropolsky Krai). It is important to note that inter-regional nature of many clusters requires cooperation and synchronization of actions for authorities of several RF constituent entities (human resources management, industrial site selection, implementation of infrastructure projects etc.). Yet, the level of cooperation in Russia is extremely low. Actions of regional authorities are still guided by the logic of competition for investments, human and other resources.
The second problem is the disregard for the “communicative” nature of a cluster. One of the strong points of the cluster approach is its ability to emphasize the corporative structure ( the main players) of a particular sector as well as to shape the potential system of partnership necessary for development of the cluster. It is extremely important to be prepared to develop competition between companies-suppliers and, at the same time, cooperation between consumers and supplies within the framework of one chain.
Another problem is absolutization of a cluster pattern. It is important to note that the cluster approach is, first and foremost, an analytical instrument and the pattern of a potential cluster varies depending on the analytical task. The most often applied cluster patterns include:
- Time-phased structural pattern. The main goal is to identify emerging new elements in the structure of the cluster, necessary for its development.
- Manufacturing pattern. It establishes the stages of the basic manufacturing process in the cluster which supports industries and key infrastructures. The pattern is used in the situation when it is necessary to demonstrate interrelations within the cluster and to indentify the existing bottlenecks.
- Problem pattern, that shows the gaps between potential structure of the cluster and the existing situation, or the external challenges that can influence development of the potential cluster.
There are several other cluster approach patterns which can be applied in the process of doing research on clusters or designing clusters. Absolutization of a cluster pattern leads to reduction of the efficiency of the cluster approach and also limits its potential. Finally, the most evident problem is lack of concrete steps to be taken by regional executive authorities and other players for development of a cluster.
The set of tools for cluster formation
The minimum set of tools necessary for formation of a cluster includes:
- organization and communication tools intended for formation of the entity for cluster development (establishment of an association to promote interests of the cluster, to conduct scientific and technological research and marketing research in the interests of the association members) and development of a communicative environment.(for example, holding a conference of suppliers). It is important to note that executive authorities can apply only indirect steps for implementation of this instrument: realization of the instrument of this type is impossible without active participation of business (and presence of leaders interested in existence of such organization);
- investment tools intended for creation of manufacturing, engineering and other types of infrastructure necessary for cluster development. The level of the influence of executive authorities on realization of this type of instruments is considerably higher compared to the previous instrument. However, activities of executive authorities can be aimed at implementation of some specific investment projects (for example, creation of a network of industrial parks with a particular specification, like car assembly and automobile parts manufacturing clusters in St. Petersburg and Kaluga Oblast , or establishment of a technology park intended for development and introduction of new technologies, like the technopark specializing in mining technologies in Kemerovo Oblast), as well as at attraction of investors for implementation of certain types of investment projects;
- procedural and institutional tools aimed at elaboration of legal and regulatory framework and supporting programs (personnel, informational, marketing etc.)
A typical mistake is the change of emphasis in selection and application of instruments: projects under development give priority to procedural and institutional instruments, which produce extremely low results without application of the other two instruments.
In conclusion, it would be necessary to note that the cluster approach is not a panacea and efficiency of its application depends on many factors. Among the most important factors is commitment of regional authorities (both in terms of qualification and political will) to build mutually beneficial relationship with business, municipal entities and, most challenging, with partners located beyond the borders of the region, i.e. other constituent entities of the Federation, entrepreneurs, research institutions etc. Without this commitment any analytical patterns and developments will come to nothing.
Related links:
CSR “North-West” Program: Regional development
CSR “North-West” Program: Cities
CSR “North-West” Program: Institutions for Development of the Innovative Economy
Author: Natalya Trunova, head of project direction, CSR “North-West”
Source: Budget magazine
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