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Basque Cluster Day 2015
25 Years of Cluster Policy in the Basque Country:
Looking back, looking ahead
Dr Christian H. M. Ketels
Institute for Strategy and Competitiveness, Harvard Business SchoolChair of the Academic Advisory Council, Orkestra
President, TCI Network
2 Copyright 2015 © Christian Ketels
• What is special about the Basque Cluster Policy
approach?
• What has happened in cluster research and cluster
policy internationally since 1990?
• What are issues that the Basque Cluster Policy has to
face now?
3 Copyright 2015 © Christian Ketels
What is Special about Basque Cluster Policy?
1. Choices at the Start
Strengthening
strengths:
A focus on
manufacturing
Finding an own model:
not just another Valley
Individual leadership:
the role of Jon Azua
4 Copyright 2015 © Christian Ketels
What is Special about Basque Cluster Policy?
2. The Approach Taken
Competitiveness Through Clusters(not the creation of clusters)
Public-Private Dialogue Through Clusters(not subsidies)
5 Copyright 2015 © Christian Ketels
What is Special about Basque Cluster Policy?
3. Sustaining the Effort
A cluster-based approach
to competitiveness as a
Basque priority, not a
party-political effort
6 Copyright 2015 © Christian Ketels
Learning from the Basque Experience
7 Copyright 2015 © Christian Ketels
How Research has Evolved: An Old Concept….
8 Copyright 2015 © Christian Ketels
…with a Stable Set of Core Building Blocks…
Collaboration
Related Variety
Critical
Mass
Proximity
9 Copyright 2015 © Christian Ketels
…in a New Economic Context
Rising
Knowledge-Intensity
Lower Trade Barriers
Globalization of production sites
Falling Transportation/
Communication Costs
Accelerated
Technological Change
Clusters are a critical facet
of modern economies
Clusters are becoming more
specialized
Clusters are becoming more
connected
Agglomeration Dispersion
Globalization of markets
10 Copyright 2015 © Christian Ketels
What Has Changed in Cluster Research?
Understanding the nature of clusters
• From case studies to cluster mapping
• Traded vs local industries
• Systematically linking performance, competitiveness, and
cluster presence
• Research on clusters of emerging industries, linkages
across clusters
Understanding the dynamics of cluster-based efforts
• Framing the role of cluster policy
• Research on cluster initiatives
11 Copyright 2015 © Christian Ketels
Research About Clusters
Case StudiesCross-sectoral
quantitative Studies
• Show nature of clusters
• Establish types of linkages that
exist within clusters
• Identify patterns of cluster
dynamics and their drivers
• Develop hypotheses on the impact
of clusters on firms and regions
• Systematic comparison of clusters
across sectors and locations
• Measurement of the overall
importance of clusters
• Tracking of cluster evolution
• Empirical tests of the impact of
cluster presence on regional and
firm-level economic performance
“Cluster Mapping”
12 Copyright 2015 © Christian Ketels
Clusters and the Nature of Competition
EMPLOYMENT
INCOME
PATENTS
36% 64%
51% 49%
91% 9%
Local Industries
• Present everywhere at
similar levels
• Serve exclusively the local
market
• Little exposure to cross-
regional competition
• Important for jobs, but
lower wages; growth
potential limited by size of
the local market
Traded Industries
• ‘Spiky’ across space; 2/3s of all
traded industry employment is in
strong clusters
• Serve national and global markets
• Exposed to competition from other
regions and nations
• Critical for prosperity through
higher wages, productivity, and
innovation; growth potential set by
the global market
Traded vs. Local Share of the U.S. Economy
13 Copyright 2015 © Christian Ketels
Clusters and Regional Specialization
Boston, MA-NH
Education and Knowledge Creation
Financial Services
IT and Analytical Instruments
Biopharmaceuticals
Los Angeles, CA
Video Production & Distribution
Apparel
Music & Sound Recording
Medical Devices
San Jose-San Francisco, CA
IT and Analytical Instruments
Biopharmaceuticals
Video Production & Distribution
Marketing, Design & Publishing
New York, NY-NJ-CT-PA
Financial Services
Marketing, Design and Publishing
Performing Arts
Music and Sound Recording
Seattle, WA
Aerospace Vehicles and Defense
IT and Analytical Instruments
Water Transportation
Fishing and Fishing Products
Chicago, IL-IN-WI
Distribution & E-Commerce
Transportation and Logistics
Financial Services
Upstream Metal Manufacturing
Denver, CO
Business Services
Medical Devices
Hospitality and Tourism
Oil and Gas Production
Raleigh-Durham, NC
Livestock Processing
Vulcanized and Fired Materials
Textile Manufacturing
Education and Knowledge Creation
Source: Prof. Michael E. Porter, Cluster Mapping Project, Institute for Strategy and Competitiveness, Harvard Business School; Richard Bryden, Director.
Pittsburgh, PA
Upstream Metal Manufacturing
Coal Mining
Electric Power Generation
Vulcanized and Fired Materials
San Diego, CA
Recreational & Small Electric Goods
Biopharmaceuticals
Water Transportation
Marketing, Design & Publishing
Atlanta, GA
Textile Manufacturing
Apparel
Communications Equipment
Business Services
Dallas
Aerospace Vehicles and Defense
Oil and Gas Production
Communications Equipment
Transportation and Logistics
Houston, TX
Oil and Gas Production
Construction Products & Services
Upstream Chemical Products
Environmental Services
13
14 Copyright 2015 © Christian Ketels
Clusters and Economic Performance
Prosperity Entrepreneurship Structural Change
• Wages
• Productivity
• Job growth
• Resilience
• Patenting
• New business
formation
• Survival of new firms
• Job growth in new
firms
• Path of structural
change(emergence
of new clusters)
Presence of Strong Clusters
15 Copyright 2015 © Christian Ketels
Linkages Across Clusters / Emerging New Clusters
Digital Industries
Computer consultancy activities
Computer programming activities
Other
information
technology and
computer service
activities
Manufacture of
communication
equipment
Other telecommunications activities
Satellite telecommunications activities
Wireless
telecommunications
activities
Wholesale of computers,
computer peripheral
equipment and software
Wholesale of electrical
household appliances
Wholesale of
electronic and
telecommunications
equipment and
partsWholesale of other
machinery and equipment
Wholesale of
other office
machinery and
equipment
Manufacture of
computers and
peripheral
equipmentManufacture
of consumer
electronics
Manufacture of
electronic
components
Manufacture of
instruments and
appliances for
measuring, testing
and navigation
Manufacture of
loaded electronic
boards
Manufacture of
optical instruments
and photographic
equipment
Other software
publishing
Publishing of
computer games
Manufacture of
electricity
distribution and
control apparatus
Manufacture of
other electrical
equipment
Book publishing
Market research
and public
opinion polling
Public
relations and
communication
activities
Manufacture of medical
and dental instruments
and supplies
Manufacture of tools
Treatment and
coating of metals
Manufacture of other
plastic products
Manufacture of other
general−purpose
machinery n.e.c.
Manufacture of other
special−purpose
machinery n.e.c.
Business Services
Com m unications
Equipm ent and Services
Distribution and Electronic Commerce
Inform ation Technology and
Analytical Instrum ents
Lighting and Electrical Equipm ent
Marketing, Design,
and PublishingMedical Devices
Metalworking TechnologyPlasticsProduction Technology
and Heavy Machinery
Digital Industries
16 Copyright 2015 © Christian Ketels
Putting Clusters into Context
(Creative)
Skills
Complexity
Social Capital
Innovation
Systems
Entrepreneurial
Ecosystems
Framework
Conditions
Clusters
Urbanization
17
• Clusters emerge naturally • Clusters emerge and develop in a
context deeply affected by policy
choices
• Collaboration within clusters
provides benefits but requires
purposeful collective action
• Policies for upgrading business
environment conditions can be
more effective if they are cluster-
specific but require information
sharing and collective action
• Cluster-based policies enable
informed decision making and
collective action
What role for policy?
18 Copyright 2015 © Christian Ketels
Two Opposing Approaches to Cluster Policy
MORE (Agglomeration)
BETTER (Competitiveness)
FINISH
• High risk
• Traditional
‘industrial policy’
• Long-term impact
• New model of public-
private collaboration
19 Copyright 2015 © Christian Ketels
The Case for Cluster PolicyLevers
Path dependency
Information asymmetries
Coordination failures
Local
Externalities
Create Platforms
for Joint Action
within Clusters
Organize Public
Policy around
Clusters
20 Copyright 2015 © Christian Ketels
Current Status of Cluster Policies and Programs
• The European Cluster Observatory lists more than 2000 cluster
initiatives and related organizations; many other countries and
international organizations, too, deploy significant efforts
• The highest number of cluster initiatives (absolute, per employee) is in
information technology and biotech
• Most OECD countries and many regions have cluster-related policy
programs
• Spending on cluster-related programs is meaningful, but only a
modest percentage of total spending per policy area
21 Copyright 2015 © Christian Ketels
Cluster Initiatives: The Track Record So Far
• Large number of initiatives, many
have shown sustainability over time
• Visible strengthening of networks
and local capacity for collective
action
• Significant engagement of
companies, including private sector
investment
• Positive impact on firm performance
for participants in collaborative
projects initiatited through cluster
iniatives
• Significant heterogeneity of impact
• Benefits for broader regional
economic performance hard to
quantify
• Government remains dominant
funder of the majority of cluster
initiatives
• Tendency to strengthen existing
structures; less successful in
enabling structural change
22 Copyright 2015 © Christian Ketels
Cluster Initiatives: Organisational Models
Government
Agency
Existing
Economic Dev.
Organization
Cluster
Initative
Membership
Organization
Service
Provider
23 Copyright 2015 © Christian Ketels
Critical Success Factors of Cluster Efforts
Setting
• Cluster with critical mass of existing
economic activities
• Broader policy environment focused on
competitiveness upgrading
Organization
Activities
• Capabilities of the Cluster Initiative Manager
and her/his staff
• Robust funding model
• Governance structure that supports a private
sector logic driving the organization
• Strategic action agenda grounded in fact-driven
analysis of the relevant market and the cluster’s
competitive position
• Operational effectiveness in individual activities
External
Internal
24 Copyright 2015 © Christian Ketels
What is Different about
Cluster-Based Economic Development?
Cluster vs.Narrow
Industries
RegionalPerspective
Build on Strengths
Policy Designwith Firm
Involvement
Public-PrivateCollective
Action
Competitiveness
Focus
25 Copyright 2015 © Christian Ketels
Work in Progress
• Evolution of clusters
• Clusters of emerging industries
• Impact assessment
• Clusters and competitiveness
26 Copyright 2015 © Christian Ketels
What Has Changed in Cluster Policy Practice?
Strengthening local buzz Building global pipelines
Strengthening StrengthsSupporting Related
Diversification
Encouraging CollaborationUpgrading
Competitiveness
27 Copyright 2015 © Christian Ketels
Issues Facing the Basque Cluster Policy
Competitiveness of existing clusters –
a task never over
Diversification into higher-value areas –
is the new model working?
From Clusters to Regional Strategy –
What is the Region’s Value Proposition?
How to
productively
engage with
the Spanish
innovation
system?
28 Copyright 2015 © Christian Ketels
The TCI Network: A Global Community of Practice in
Cluster-Based Economic Development
28
www.tci2015.org
www.tci-network.org