Road mapping method in implementation of regional cluster policy

The development of clusters, the development and implementation of cluster policy are among the strategic objectives of the eight federal districts of the Russian Federation. The documents of strategic planning of ten subjects of the Russian Federation are analyzed. It is noted that the directions of the cluster policy are mainly reflected in the strategy of the socio-economic development of the region or in a separate section in the industrial (innovation) policy, the activities are scattered across various regional programs. The relevance of the research topic is predetermined by the fact that the mechanism for implementing the cluster policy is not spelled out and its directions may remain the declared intentions of the authorities. The lack of comprehensive data on the implementation of measures to support and develop clusters within the framework of all regional programs does not allow assessing the effectiveness of the cluster policy as a whole. The purpose of the study was to substantiate the possibility of applying the methodology of road mapping for the implementation of the cluster policy of the region. Based on the Foresight technology, a model of the roadmap for the implementation of the regional cluster policy has been drawn up, which includes activities that are interrelated in terms of goals, financial resources, deadlines and implementers. In contrast to the current road mapping documents, the proposed model is supplemented with a text part describing the areas of development of the cluster economy, expected results, as well as target indicators of the results of the implementation of cluster policy. Establishment of baseline and planned indicators with a breakdown by years and stages of the implementation of the cluster policy will provide an opportunity to determine the results achieved (effectiveness) and the ratio between the achieved result and the resources expended (efficiency).

Keywords

cluster, region cluster policy, road map, target indicators, methods of public administration

Received

05.09.2021

Publication date

05.12.2021

Number of characters

22546

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GOST	Bergal O. Road mapping method in implementation of regional cluster policy // Pskov Journal of Regional Studies – 2021. – Volume 17. No4 /2021 C. 111-122 [Electronic resource]. URL: https://prj.pskgu.ru/S221979310016631-7-1 (circulation date: 05.05.2024). DOI: 10.37490/S221979310016631-7
MLA	Bergal, Olga "Road mapping method in implementation of regional cluster policy." Pskov Journal of Regional Studies 4 (2021):111-122. DOI: 10.37490/S221979310016631-7
APA	Bergal O. (2021). Road mapping method in implementation of regional cluster policy. Pskov Journal of Regional Studies (4), pp.111-122 DOI: 10.37490/S221979310016631-7

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1	The research relevance and problem statement. In Russia, government takes a special role in the clusters’ development. Clusters are a significant alternative to the sectoral planned economy and unite all areas of science, education, government and business. The clusters’ development, cluster policy (hereinafter — CP) development and implementation are among the strategic objectives of the eight Russian Federation federal districts. A regional CP is understood as a set of government measures aimed at the development of clusters, cluster development centers, cluster infrastructure facilities that ensure the growth of innovation, import substitution, labor productivity and wages, gross regional product and regional economy within the framework of region’s socio-economic development strategy. Currently, the CP Concept of the Yaroslavl and Novosibirsk regions is being implemented, with separate sections of the CP direction included in the industrial policies of the Moscow and St. Petersburg cities, the Tatarstan republic, the Altai territory¹. In most constituent entities of the federation, the CP directions are defined in the regions’ socio-economic development strategies, for example, Krasnodar and Stavropol territories, Rostov oblast and other regions. Funding for measures of clusters government support is carried out at the expense of the federal and regional budgets, subject to the cluster inclusion as a participant in the government program.	1. Results information on the implementation of strategic planning documents results posted on the Russian Federation entities constituent administrations official websites.
2	Methodological Recommendations is the main document that guides the regional authorities for the cluster policy implementation in the constituent Russian Federation entities². They indicate: the CP goals and objectives; the main directions of promoting the clusters development; possible options for measures to implement the CP; measures to prevent the risks of ineffective implementation of the commercial proposal; possible results of the CP implementation. However, there are no recommendations for the development of a roadmap (hereinafter — RM) or an action plan for the CP implementation in the document. It can be assumed that the regional authorities should independently, on an initiative basis, develop a mechanism for implementing the CP directions.	2. Methodological recommendations for the cluster policy implementation in the constituent RF entities, letter dated December 26, 2008 No. 20615-ak/d19.
3	The need to develop a RM for the CP implementation is predetermined by some factors. 1. Given the long term of cluster projects implementation, the CP may lose its effectiveness if the choice objects for support later turns out to be suboptimal. The fundamental risks’ reason lies in the fact that after the subsidies allocation and the initial support provision, the government is effectively eliminated from joint work on the cluster development. Over the years, the management system has been demonstrating its inability to ensure the implementation of periodically formulated strategic goals for economic development and regional policy [12]. Monitoring and evaluating the performance of clusters serve as an information basis for the subsequent adjustment of the objects list, volume of the government support, development mechanisms [1]. 2. Funds for financing government support measures allocated for the clusters development are scattered across various government programs, their spending, in some cases, is not tied to the CP implementation. The results of the sectoral clusters development are reported at the level of the relevant sectoral ministries. In turn, the procedure for the formation of summary information on the results of the CP implementation is not regulated. At the same time, there are risks that the directions of the CP may remain the declared intention of the constituent Russian Federation entity authorities. 3. CP is developed for the implementation period of the region’s socio-economic development strategy. CP refers to strategic planning documents and falls under the control³. However, the data analysis on the implementation of strategic planning documents results posted on the Russian Federation entities constituent administrations official websites, and control results posted on the State and Municipal Financial Audit Portal⁴, makes it possible to form the opinion that control over the CP implementation in the regions is not carried out. The main risk is the lack of CP adjustments in the implementation process.	3. Russian Federation Government Decree of December 26, 2015, No. 1449 “On the procedure for developing, adjusting, monitoring and controlling the implementation of plans for the activities of federal executive bodies, the activities of which are managed by the Russian Federation Government”. 4. Government and municipal financial audit portal. URL: >>>>
4	This indicated problems predetermined the study relevance.
5	The study purpose is to substantiate the possibility of applying the road mapping methodology for the CP implementation in the region.
6	The study hypothesis is based on the assumption that RM as a management technology will ensure control over the CP implementation and make informed management decisions in the event of its adjustment.
7	The methodological basis for studying the cluster development issues, development and implementation of CP is based on the works of foreign [18–24; 29] and Russian scientists [1; 6; 8; 11]. In the historical aspect, prototypes of modern clusters existed in Russia long before M. Porter introduced the term “cluster”. The cluster theory was formed in the mainstream of Soviet economic geography, starting with territorial production complexes [7], research and production associations and intersectoral industrial complexes [2; 13; 16]. Russian scientists continue to discuss CP issues formation, place and role of the government in the cluster development process, cluster management mechanisms [5; 6; 8; 10; 11; 17; 25; 26], however, the regional aspect of managing the process of CP implementing has not been fully studied.

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