cluster policy, cluster policy development and implementation process, cluster policy principles, cluster policy agents

The publication was prepared within the framework of the scientific project “Efficiency of the cluster spatial development of the region in the context of the transition to an innovative economy” supported by the Russian Humanitarian Foundation No. 16-12-59011

Oborina Ekaterina Dmitrievna

Methodological bases for the development and implementation of regional cluster policy// Regional Economics and Management: electronic scientific journal. ISSN 1999-2645. - . Article number: 5226. Publication date: 2017-12-31. Access mode: https://site/article/5226/

Oborina Ekaterina Dmitrievna
PHD, associate professor of the department of world and regional economy, economic theory
Russia, Perm National Research University
[email protected]

Abstract

The aim of the article is to improve the methodological foundations for the formation and implementation of cluster policy at the regional level. In order to achieve this goal, the author analyzed the experience of foreign countries in strategic cluster planning, examined the main components of cluster policy, as well as the stages in the formation and implementation of cluster programs, and proposed a model for regional cluster policy. The practical significance lies in the possibility of the government bodies applying the findings of the study to the formation and implementation of cluster policy in the region.

cluster policy, the process of developing and implementing cluster policy, the principles of cluster policy, cluster policy agents

Article is based on research carried out with the financial support of the grant of the Russian Humanitarian Scientific Fund. Project "The efficiency of cluster spatial development of the region in conditions of transition to innovative economy" №16-12-59011

Oborina Ekaterina Dmitrievna

Methodological basis for the development and implementation of regional cluster policy. Regional economy and management: electronic scientific journal. . Art. #5226. Date issued: 2017-12-31. Available at: https://site/article/5226/

S. N. Kotlyarova

formation of cluster policy in the regions of Russia1

The problems of legal regulation of cluster development in Russian Federation and at the regional level. The main normative acts regulating the formation and development of clusters are systematized. The conclusion is made about the weak development of one's own regulatory framework regions and the use by regions of mostly federal approaches to the formation of cluster policy. The practice of clustering subjects of the Russian Federation is generalized. The prerequisites for the formation of clusters in the regions and their subsequent development are highlighted. A comparison of approaches to the formation of cluster policy in the constituent entities of the Russian Federation was carried out, the features of the territories were identified in terms of determining the types of clusters and measures of state support for their formation. The main reasons for the development of regional clusters are formulated: building according to the type of the dominant firm; mutually beneficial cooperation of cluster members; active support from the state and regional authorities (public-private partnership and personal participation of the leadership of the region); initiative from below.

Keywords: cluster, regional development, concept of cluster development, cluster policy

One of the most effective solutions to the problem of increasing the competitiveness of the economy is the implementation of state support measures for the formation and development of clusters. The tool for the implementation of these activities is the cluster policy approved at the state or regional level.

The creation of a cluster model of the economy, which implies the creation of an optimal combination of competition and cooperation, is one of the promising areas in regional development. In the Russian Federation, the process of clustering develops, as a rule, spontaneously and spontaneously, at the initiative of the regions or individual large companies.

Today, many regions of the Russian Federation not only plan to create and develop clusters on their territory, but also believe that they already exist.

The prerequisites for the formation of clusters and their subsequent development are:

1. Scientific potential: the presence of world-class scientists, large scientific centers, university and factory science. This is especially true for the conditions for creating innovative clusters.

1 The article was prepared with the financial support of project No. 12-P-7-1001 "New tools and methods for forecasting the innovative and technological development of regions", carried out within the framework of the Program of Fundamental Research of the Presidium of the Russian Academy of Sciences No. 34.

2. Innovation potential of the territory (presence of a developed innovation infrastructure).

3. The political prerequisite is the determination of the leadership to develop innovation as one of the strategic priorities in the region (which should be enshrined in strategic documents for the development of the territory, the development of cluster documents).

4. Institutional prerequisites (the status of a science city of the Russian Federation, support from the funds federal budget and various funds, federal and regional support for the idea of ​​forming clusters).

5. Initiative from below (the interest of enterprises - potential participants in the cluster).

The problem of the need to form clusters in the Russian economy was first voiced in 2005. Thus, in the Strategy for the Development of Science and Innovation in the Russian Federation for the period up to 2015, the tasks of modernizing the economy were named in the form of stimulating demand for innovation and results scientific research, creation of conditions and prerequisites for the formation of sustainable research and production cooperation ties, innovative networks and clusters.

In the Program of socio-economic development of the Russian Federation for the medium term (2006-2008) as one

from the ways of mobilizing the available resources of economic growth in the regions for dynamic, increasing competitiveness and diversification of the regional economy, the development of production clusters is determined.

The concept of long-term socio-economic development of the Russian Federation for the period up to 2020 defines the formation of new centers of socio-economic development through the creation of a network of territorial production clusters that realize the competitive potential of territories as the main direction of economic development. At the federal level, the Ministry of Economic Development of the Russian Federation acts as a coordinator for the implementation of cluster policy in the regions.

In 2008, the Ministry of Economic Development of Russia adopted the Concept of Cluster Policy in the country and developed "Methodological recommendations for the implementation of cluster policy in the constituent entities of the Russian Federation", which define the main directions for promoting the development of clusters implemented by state authorities and local governments; system of measures for the implementation of cluster policy; mechanisms of financial support for the implementation of cluster policy at the federal level.

The implementation of cluster policy should stimulate innovation, foreign direct investment and economic growth in regions with potential clusters. The concept of cluster policy consists of three main blocks: departmental support for clusters, measures to develop the competitiveness of cluster members, and the creation of favorable conditions for the development of clusters.

At the federal level, a number of mechanisms have been formed to provide flexible funding for cluster development activities. So, for example, the provision of federal budget funds provided for state support of small business on a competitive basis is regulated by the relevant rules that determine the possibility of providing subsidies to the constituent entities of the Russian Federation to finance activities provided for in the relevant regional program. This mechanism creates opportunities for the flexible use of financial support of subjects

Russian Federation in order to implement a wide range of cluster projects.

In a number of regions, separate programs for the development of clusters are adopted or organizational structures are created for their development. However, there is a problem of insufficient development of normative acts regulating cluster policy.

Thus, the formation of clusters is provided mainly in the laws regulating general issues socio-economic development: in the laws that approve the strategies for the socio-economic development of the constituent entities of the Russian Federation (the republics of Mordovia, North Ossetia, Chuvash; Krasnodar, Primorsky Territories; Voronezh, Kemerovo, Lipetsk, Samara, Tomsk, Ulyanovsk and other regions); programs for the socio-economic development of the constituent entities of the Russian Federation (the republics of Tatarstan, Buryatia, Udmurt; Rostov, Sverdlovsk, Tambov, Tomsk, Kemerovo, Voronezh, Chelyabinsk and other regions); concepts (Pskov region, Stavropol region).

The Republic of Tatarstan has a program “Development and distribution of the productive forces of the Republic of Tatarstan on the basis of a cluster approach until 2020 and for the period until 2030”, which notes favorable conditions for the formation and development of effective territorial clusters in petrochemistry, engineering industries (primarily in the automotive industry), as well as in the educational complex on the territory of the republic.

The formation of clusters is also provided for in the laws governing the development of small and medium-sized businesses (Moscow, Orenburg, Murmansk, Tula regions) in terms of providing financial and credit support to small and medium-sized enterprises to participate in industrial clusters.

The laws on industrial policy of the constituent entities of the Russian Federation also contain a number of provisions regulating the formation of clusters. In particular, in the law "On Industrial Policy in the Orenburg Region", non-financial measures of state support for industrial entities include providing conditions for the creation of industrial clusters, stimulating the development of a network of innovative infrastructure and service infrastructure for industrial enterprises.

The formation of clusters in individual industries is reflected in separate regulations. For example, the creation of tourism clusters is regulated by Decree of the Government of the Russian Federation of October 14, 2010 No. 833 “On the creation of a tourism cluster in the North Caucasus Federal District, the Krasnodar Territory and the Republic of Adygea”; in the Republic of Buryatia, a concept for the development of tourism was adopted under the title "Development of domestic and inbound tourism in the Republic of Buryatia for 2011-2016". The main goal of the program is to form and increase the competitiveness of the tourism cluster. The formation of tourist and recreational zones and tourist clusters is enshrined in the Regional Target Program "Tourism Development in Sverdlovsk region for 2011-2016". In the Yaroslavl region, by a decree of the regional government, a coordinating council was created to create and develop a tourist and recreational cluster.

The creation of pharmaceutical clusters is regulated by Decree of the Government of the Russian Federation of February 17, 2011 No. 91 “On the federal target program “Development of the pharmaceutical and medical industry of the Russian Federation for the period up to 2020 and beyond””, Decree of the Government of St. Petersburg of April 22, 2010 No. 419 “On the concept of creating a pharmaceutical cluster in St. Petersburg”.

Proposals on measures for the development of automotive clusters are contained in the Strategy for the Development of the Automotive Industry of the Russian Federation for the period up to 2020. At present, three key automotive clusters have practically formed: 1) Privolzhsky (Tolyatti - Samara, Naberezhnye Chelny - SEZ "Alabuga", Ulyanovsk - Nizhny Novgorod); 2) Central (Moscow - Kaluga, Vladimir); 3) North-West (St. Petersburg, Veliky Novgorod - Pskov).

The formation of an agro-industrial cluster is laid down in the strategic documents of the Altai Territory, where the grain product cluster is the most formed and prepared for development in the new conditions and there are conditions for creating a dairy cluster, as well as the Stavropol Territory.

The application of cluster policy is regulated by laws on innovation activity

a number of subjects of the Russian Federation. In particular, the Law "On the policy of the Novosibirsk region in the development of the innovation system" sets the formation and development of scientific, industrial and technological clusters on the basis of scientific, technical and innovative programs and projects as one of the tasks. The law “On Innovation Activities in the Altai Territory”, adopted by the Decree of the Altai Regional Council of People’s Deputies dated September 7, 2006 No. 453, speaks of the need to promote the formation and development of clusters, including in science cities of the Russian Federation located on the territory of the Altai Territory.

Cluster policy has found wider reflection in the programs and strategies of innovative development of the subjects of the Russian Federation. Cluster policy mechanisms are present in the innovation strategies of the Novosibirsk and Tomsk regions; The innovation-cluster scenario of socio-economic development is laid down in the Strategy for the Development of Innovation Activities in the Kamchatka Territory. In the long-term regional target program "Development of innovative activity in the Voronezh region for 2011-2015" the development of innovative industrial clusters is designated as one of the main tasks. The regional target program for the development of innovation activity in the Samara region for 2009-2015 sets the main goals of the development of territorial production clusters, high-tech sectors of the economy based on the introduction of innovative technologies.

In the last two years, the subjects of the Russian Federation have begun to develop and adopt their own concepts of cluster policy.

One of the pioneers of cluster development is St. Petersburg, which developed a draft resolution of the Government of St. Petersburg "On the basics of the cluster policy of St. Petersburg for 2010-2015", which was sent to the Ministry of Economic Development and received an official positive review. A pharmaceutical cluster has been created and is functioning in St. Petersburg, the development of which is one of the government's priorities. The creation of pharmaceutical clusters is regulated by the Federal Target Program "Development of the pharmaceutical and medical industry of the Russian Federation for the period up to 2020

and further perspective”, Decree of the Government of St. Petersburg “On the Concept of creating a pharmaceutical cluster in St. Petersburg”. Since the creation of the pharmaceutical cluster of St. Petersburg in 2010, its residents are 11 domestic and foreign companies that have initiated investment projects to create laboratory complexes, research centers and pharmaceutical production facilities with a total investment of more than 29 billion rubles.

In the Yaroslavl region, the concept of cluster policy has been approved and is in effect until 2015, according to which it is planned to create 3-5 promising clusters in the region, organize 5-7 industrial parks and large investment sites with the necessary infrastructure, increase the volume of investments in fixed assets by 50% by 2015, develop up to 10 regional investment projects and attract co-financing for their implementation from Russian development institutions, increase the share of production of end products that are competitive at the Russian and international level.

The cluster of the pharmaceutical industry and modern innovative medicine in the Yaroslavl region has been developing since July 2009. The initiative to create a pharmaceutical cluster in the Yaroslavl region immediately received the support of the Prime Minister of the Russian Federation Vladimir Putin. As a result of consultations, the Ministry of Industry and Trade included the Yaroslavl Region in the Pharma-2020 Strategy among the priority regions for the development of a modern pharmaceutical industry. At the initial stage of its formation, there were only two production facilities, by mid-2011 six large companies had already begun implementing their projects in the Yaroslavl region. These are Nycomed, R-Pharm, NTpharma, Farmoslavl, Vitapharma, Bentus Laboratories. Today this list has been supplemented by TEVA Pharmaceutical Enterprises Limited.

Since the adoption of the resolution of the regional government "On the coordinating council for the creation and development of a tourist and recreational cluster in the Yaroslavl region" dated August 14, 2009 No. 850-p, which approved the position and composition of the council under the leadership of the governor of the region, the countdown of the implementation

thorny policy in the field of tourism. The Tourist and Recreational Cluster was created with the aim of increasing the competitiveness and efficiency of the tourism industry of the Yaroslavl Region, the rational use of the cultural and natural heritage of the region.

The Republic of Tatarstan approved the Concept of Cluster Development of the Sectors of the Economy and the Social Sphere for 2011-2015 (Resolution of the Cabinet of Ministers of the Republic of Tatarstan No. 925 dated November 23, 2010), the goal of implementing the cluster policy is to increase the competitiveness of the Tatarstan economy based on its modernization and diversification.

In the Moscow Region, on June 21, 2011, the resolution “On the Draft Law of the Moscow Region “On Amendments to the Law of the Moscow Region“ On investment policy bodies of state power of the Moscow Region," according to which the participation of state bodies of the Moscow region in the creation and development of industrial districts, special economic zones and other development territories is expected.

Moscow has developed the "Concept of the cluster policy of the city of Moscow in the field of small and medium-sized businesses" in order to ensure the competitiveness of small and medium-sized businesses.

Stimulating the creation of clusters in the Republic of Bashkortostan is one of the priority areas of the socio-economic policy of the region. The Republic adopted the document "Cluster Policy of the Republic of Bashkortostan", which defines program-targeted measures for the implementation of cluster policy in the region. The republic also has an action plan for the implementation of the cluster policy of the Republic of Bashkortostan until 2012.

The Kamchatka Territory has developed a draft regional law “On Cluster Policy in the Kamchatka Territory”, which is an annex to the regional development strategy until 2025.

In the Voronezh region, the Departmental target program "Formation and development of cluster formations in the Voronezh region in 2011-2013" is operating. The purpose of the program is to create favorable conditions for the effective formation and development of cluster formations in the industrial

plex of the Voronezh region. The government of the region proposes measures aimed at the formation of industry clusters in the industry of the region: in the field of oil and gas and chemical engineering, electromechanics, aircraft building and radio-electronic industries.

Automotive clusters are an example of successfully developing clusters.

The automobile cluster Samara - Togliatti, known since the Soviet times, is located in the Samara region. The automotive industry is one of the backbone industries in the region, which concentrates about 40% of production, 40% of employees, 65% of industrial fixed assets, 25% of R&D costs, and 20% of exports. The Samara Automotive Cluster includes AvtoVAZ (Renault), GM-AvtoVAZ, 700 component manufacturers, more than 300 cooperation organizations, and 2 million people employed in the industry. Thus, the Volga Automotive Cluster belongs to the clusters built according to the type of a dominant firm, around which suppliers and consumers of products are united.

An industrial cluster for the production of household appliances based on CJSC Indesit International (an enterprise with 100% foreign capital) has been formed in the Lipetsk Region of a similar type. CJSC Indesit International is the largest manufacturer in Europe with a full cycle of production of refrigerators and washing machines. The industrial cluster included small and medium-sized enterprises of the Lipetsk region producing components for "white equipment". Currently, 12 enterprises of the Lipetsk region are involved in the supply of components for CJSC Indesit International. This cluster also includes the Indesit Company, opened in October 2005, the first home appliances logistics center in Russia, which is also the largest in Europe in its sector. The logistics center is located on an area of ​​55 hectares and serves for the storage and distribution throughout the CIS of the entire product range of Indesit Company with a total of 3.0 million pieces per year. In the future, the Italian side is considering the possibility of organizing the production of kitchen stoves in the Lipetsk region.

Thus, both the Samara automobile cluster and the Lipetsk cluster for the production of household appliances are examples of the formation of clusters around dominant firms.

end product manufacturers. The role of large companies (especially at the stage of cluster formation) is to “link” potential cluster members.

Another example of a successfully developing cluster is Kaluga, where a cluster for the production of cars and auto components is actively developing, the core of which is Volkswagen, Volvo Truck, the PeugeotCitroen alliance and Mitsubishi Motors.

Along with the automotive cluster, four more innovation clusters are being created in the Kaluga Region: biopharmaceutical, nuclear technology and radiomedicine, production of new materials, and nanotechnology. To coordinate this activity, the JSC Agency for Innovative Development was established

Center for Cluster Development of the Kaluga Region. The departmental target program "Integrated Development of the Innovation System of the Kaluga Region" was adopted. An important task in this work is also the interaction of the Kaluga region with the Russian Corporation of Nanotechnologies and the Skolkovo Foundation. The main elements of the innovation infrastructure have been created in the region - five business incubators, a technology transfer network, a venture fund, three centers for the collective use of instruments and equipment, and two innovation and technology centers.

In the Ulyanovsk region, the development of cluster policy is actively supported. Thus, by the Decree of the Government of the Ulyanovsk region "On approval of the regional target program "Ulyanovsk - the aviation capital" for 2009-2011" dated September 23, 2009 No. 35/342-P, the project of creating the aviation cluster "Ulyanovsk-Avia" was implemented, the regional target program "Ulyanovsk - the aviation capital" for 2009-2011 was developed. in this document is defined as a group of related companies (suppliers, manufacturers, etc.) and related organizations ( educational institutions, infrastructure companies) operating in the aviation industry and complementing each other. In the aviation cluster of the Ulyanovsk region

There are now 19 enterprises and organizations in the region. The successful results of the region's aviation cluster provide a positive example for the possibility of forming clusters in other industries. In particular, work is underway to prepare a project for the creation of an automobile cluster in Ulyanovsk, which is at the stage of approval. The center of the automotive cluster will be the Ulyanovsk Automobile Plant. Other important components of the cluster will be the Dimitrovgrad Automotive Plant (one of the main suppliers of VAZ) and more than 70 enterprises engaged in the production of automotive components, including the Ulyanovsk Motor Plant and Avtodetalservis, as well as educational institutions (UlGU, UlGTU, technical schools) that train personnel for the automotive industry.

Consolidation of small and medium-sized enterprises on the basis of mutually beneficial cooperation and the formation of clusters on this basis - the experience of the functioning of the Altai Biopharmaceutical Cluster (ABFC). The project to create a biopharmaceutical cluster with a center in the science city of Biysk is due to the fact that a number of enterprises in the city are focused on the production of pharmaceuticals, have extensive research experience and stable relationships with suppliers of raw materials. The structure of the ABFC in terms of the nature of the activities of its constituent enterprises corresponds to the European poles of competitiveness: scientific organizations, educational and production organizations with the active participation and support of city and regional authorities.

One of the relevant examples of the formation and functioning of clusters in the Russian Federation is the creation of a linen cluster in the Vologda region. Flax producers received the official status of a cluster after a meeting of the State Council in Ivanovo on June 20, 2008, when four pilot projects for the development of linen production were formed: in the Vologda, Kostroma, Yaroslavl and Ivanovo regions. In the Vologda Oblast, a long-term Target Program "Development of the Linen Complex of the Vologda Oblast for 2009-2012" was formed.

The basis and locomotive of the cluster that is being formed in Vologda today is the plant, which since 2008 has been operating on two sites -

kah: in Vologda (fabrics of the main weaves) and Krasavino (jacquard fabrics). The horizontal integration characteristic of the cluster around a large industrial core of suppliers of raw materials, small companies, service, manufacturing (applied materials, accessories), trade and logistics companies, homeworkers, vocational and educational institutions can give the Vologda Oblast thousands of new jobs. And the participants Russian market The fashion and home textile industries can take full advantage of the developed market infrastructure they are accustomed to dealing with, buying goods in Italy or placing production orders in Turkey and China.

Another factor in the success of cluster development is public-private partnership. The total investment budget of the Vologda flax project in 2008-2013 (before the development production capacity) exceeds 6.5 billion rubles. The State Development Institute should contribute 3.23 billion rubles to it, the region - 2.354, private investors - 0.9. At the first stage (until November 2010) federal subsidies amounted to 45 million rubles. (14 - for the agricultural sector, 31 - for textiles). Regional funds (including contributions to the authorized capital of OAO Vologda Textile, more than 60% of whose shares are owned by the region) - 1.7 billion rubles. (of which 1.2 billion went to textiles). Private investments amounted to 967 million rubles. .

Another engine for the development of this cluster is the human factor. In our country, it dominates technologies, trends, methods, laws and regulations. The Vologda governor became the initiator and soul of this project, thanks to his will, perseverance and common sense, and the cluster mechanism began to unwind in the region.

In the Sverdlovsk region, a draft cluster policy for the region has been developed, which is currently being coordinated.

The Sverdlovsk region is the center of concentration of manufacturing companies in the field of information technology and higher educational institutions that produce specialists in demand on the market. And here you can see an example of clusters created on the initiative from below - these are IT and pharmaceutical clusters.

The 1T cluster was initially positioned as an association of software companies producing a circulation product. About a hundred of them work in the region, their turnover is small. But in 2011, the strategy changed: equipment manufacturers were “allowed” into the cluster, and several large companies operate in this segment in the Sverdlovsk region. Within the framework of the cluster, working groups have already been created (to work with start-ups, schoolchildren, universities, clients), educational events are periodically held, a club of mentors has been created, and areas have been determined that should be received at a reduced price mainly by small IT companies.

In 2010, the Ural Pharmaceutical Cluster was created, which is a complex of enterprises and companies united by the goal of creating a high-tech complex of interconnected industries in the region for the development, production and sale of modern medicines, medical equipment and high-quality medical products. At the moment, the cluster members are the Yunona holding, scientific institutions (Institute of Organic Synthesis of the Ural Branch of the Russian Academy of Sciences, Yekaterinburg Research Institute of Viral Infections), innovative companies (Skolkovo Innovation Fund, Ural Center for Biopharmaceutical Technologies LLC, Ural Medical Nuclear Center LLC - residents of Skolkovo), financial institutions (Vnesheconombank State Corporation), trade and procurement and service companies (Pharmatsevt LLC, LLC S plav-2") and, of course, basic enterprises- manufacturers of pharmaceutical and medical products (Medsintez Plant LLC, Dizet Plant LLC, Berezovsky Pharmaceutical Plant CJSC, Pharmaceutical Factory OJSC, Kopeysk). The cluster is an open structure, all applications for membership are considered without exception. The peculiarity of the project is that it can become interregional. Today, negotiations are underway to locate new production facilities and laboratories on the territory of the Chelyabinsk region: in Ozersk (construction of a medical technopark, research clinic, production of dialysis filters) and Kopeysk (appearance of a laboratory at the site of the State Unitary Enterprise Kopeyskaya Pharmaceutical Factory and production of new drugs).

However, it is questioned that the declared chemical cluster is actually a cluster. At this stage, in fact, it fits into the investment program of the Uralchimplast holding (although the authorities imply the creation of a mythical second stage at the new infrastructure site).

But even in those projects where there is a community of enterprises, sometimes there is no main feature of the cluster - competition. It is she who requires an increase in production efficiency and product quality, which gives rise to the need for innovation. And the authorities are striving to create a technological chain similar to the Soviet territorial-industrial complexes - several enterprises producing non-overlapping end products with a network of contractors-suppliers.

In other regions, the situation with the creation of clusters and information about them is worse. Basically, all projects are just general words, without specific figures and programs of action.

Approaches to the formation of cluster policy in the regions are different. The current existence of relations related to the creation and development of clusters of enterprises is confirmed by the fact that this term is actively used in sectoral by-laws of the Russian Federation.

The Methodological Recommendations for the Implementation of Cluster Policy in the Subjects of the Russian Federation (letter No. 20615-AK/D19 dated December 26, 2008) uses the concept of a territorial cluster - an association of enterprises, suppliers of equipment, components, specialized production and services, research and educational organizations connected by relations of territorial proximity and functional dependence in the sphere of production and sale of goods and services. At the same time, clusters can be located on the territory of one or several constituent entities of the Russian Federation. The same definition is contained in the concept of the cluster policy of the Russian Federation, however, it is used to determine the territorial production cluster.

Trends in the creation and development of clusters of enterprises in the territory of the constituent entities of the Russian Federation are reflected in regional legislation. The documents on the formation of cluster policy in the subjects of the Russian Federation apply

the concept of a cluster, which is understood as a set of economic entities of a related profile, interconnected and complementary to each other, closely located and contributing to the overall development and growth of each other's competitiveness.

The main goal of implementing the cluster policy at the level of the Russian Federation is to ensure high rates of economic growth and diversification of the economy by increasing the competitiveness of enterprises, suppliers of equipment, components, specialized production and services, research and educational organizations that form territorial production clusters. In the documents of the constituent entities of the Russian Federation, as a rule, the goal of cluster policy is to increase the competitiveness of the economic entities themselves - participants in clusters and the economy of the region as a whole. Competitiveness in the subjects will be achieved by creating conditions for the formation and development of clusters (Sverdlovsk, Yaroslavl regions), on the basis of modernization and diversification of the economy (the Republic of Tatarstan, Bashkortostan), in addition to increasing competitiveness in the Republic of Bashkortostan, the task is also to develop the innovative potential of enterprises and individual industries, small and medium-sized businesses.

In the regional concepts of cluster policy to the definition of types of clusters. At the federal level, taking into account industry specifics, the following types of clusters are distinguished: discrete, process, innovative and "creative", tourism, transport and logistics, mixed clusters. A similar approach to identifying regional clusters is used in the Republic of Tatarstan and St. Petersburg. In the Sverdlovsk region, clusters are proposed to be grouped according to the level of development (functional, latent and potential) and for each type to form their own special methods and forms of state support. In the Republic of Bashkortostan, a different approach is used to identify groups of clusters - in terms of priority areas of cluster policy and forms of support, types of clusters are proposed for creation: industrial areas; radial, "satellite", state clusters. For every type

clusters are offered special cluster policy efforts and support mechanisms.

The identification of clusters and their use to stimulate innovative development are characteristic of the cluster policy of the Leningrad Region. In St. Petersburg, 9 main clusters have been identified: power engineering, shipbuilding and ship repair, food, transport, tourism, woodworking, software and information technology, optical instrumentation, and metallurgy.

There are also different approaches to measures to support cluster development in the regions, although they correspond to the main directions for promoting the development of clusters, stated in federal documents:

1. Promoting the institutional development of clusters.

2. Development of mechanisms to support projects aimed at increasing the competitiveness of enterprises and promoting the effectiveness of their interaction.

3. Ensuring the formation of favorable conditions for the development of clusters.

As already noted, in the Sverdlovsk region and the Republic of Bashkortostan, forms of support for cluster initiatives have been developed for various types of clusters. At the same time, Bashkortostan proposes measures aimed at increasing the competitiveness of cluster companies in foreign markets and developing cooperation within the cluster itself. And in the Sverdlovsk region, support measures are different depending on the level of development of clusters and their sectoral orientation. In the Yaroslavl region, emphasis is placed on creating conditions for the formation of promising (pilot) clusters.

Thus, in the subjects of the Russian Federation, the processes of forming a cluster policy are underway, but there is a problem of insufficient development of regulations governing it. In most regions, cluster policy is reflected in the strategic and program documents for the development of the constituent entities of the Russian Federation, and separate mechanisms for the formation and support of cluster initiatives are present in various kinds of regulations governing innovation and investment development, industrial policy, etc. And only a few constituent entities of the Russian Federation have taken the path

development of their own concepts of cluster policy, which use federal approaches to its formation with emphasis on

understanding the characteristics of a particular territory in terms of determining the types of clusters and measures of state support for their formation.

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Kotlyarova Svetlana Nikolaevna (Yekaterinburg) - Candidate of Economic Sciences, Associate Professor, Senior Researcher, Institute of Economics, Ural Branch of the Russian Academy of Sciences (620014, Yekaterinburg, Moskovskaya st., 29, e-mail: [email protected]).

S. N. Kotlyarova

Formation of cluster policy in Russian regions1

This paper deals with the problems of legal regulation of cluster development in the Russian Federation at the regional level. Basic regulations governing the formation and development of clusters were put in a system. It is concluded that own regulatory regions, and regions using mainly general federal approach to the formation of cluster policy are poorly developed. The practice of clustering of the Russian Federation was generalized. Prerequisites for the formation of clusters in the regions and their subsequent development were identified. A comparison of approaches to the formation of cluster policy in the Russian Federation was made, particularities in the areas of the clusters were highlighted and the types of state support for their formation were determined. The basic reasons for the development of regional clusters are: construction of the type of dominant firms, mutual cooperation of cluster members, active support from government and regional authorities (public-private partnerships and personal involvement of management in the region) and bottom-up approach.

Keywords: cluster, regional development, concept of cluster development, cluster policy

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Information about the author

Kotlyarova Svetlana Nikolaevna (Yekaterinburg, Russia) - PhD in Economics, Assistant Professor,senior research scientist, Institute of Economics, Ural Branch of the Russian Academy of Sciences (620014, Yekaterinburg, Moskovskaya st., 29, e-mail: [email protected]).

UDC 325.1(470.54)

E. V. Nekrasova

optimization of internal migration as a mechanism for solving the problems of single-industry towns in the Sverdlovsk region1

The problems of single-industry towns and ways to solve them are considered. An analysis of the internal mobility of the Russian population was carried out on the basis of sociological studies of the Gallup Institute and the Institute for International Family Studies. The necessity of optimization of pendulum migration between the territories of the municipal level in order to solve the problems of single-industry towns is substantiated. A mathematical model has been developed for the problem of optimizing migration flows between the territories of the municipal level for commuting by road. The model was tested on the example of six typical single-industry towns of the Sverdlovsk region (Revdinsky district, Verkhnyaya Pyshma, the cities of Krasnoturinsk, Krasnouralsk, Serov, Sukhoi Log). Taking into account the current situation on the labor market and the future need for labor force, the considered municipalities are divided into the territories of employment and departure of migrants. An optimal plan for employment in the territories of single-industry towns of the Sverdlovsk region has been built, for the implementation of which a road traffic scheme has been developed from north to south of the Sverdlovsk region with the organization of a transfer hub in the city of Yekaterinburg.

Keywords: single-industry city, internal mobility of the population, commuting migration, optimization problem, employment plan

Currently, in the Sverdlovsk region, 70% of the cities are single-industry, 44% of the population lives on their territory. The reduction in demand for the products of metallurgical and machine-building enterprises in 2008 led to a decrease in the profitability of

1 The work was financially supported by the Russian Humanitarian Science Foundation (No. 12-32-01201a2 “Modeling of internal and external migration flows in the regions of Russia: factors of influence and optimization of development”).

production, forced layoffs, curtailment of investment and social programs, stagnation of the cities of the Sverdlovsk region that specialize in it.

Mass unemployment in single-industry towns has its sad specifics. Since employment at the city-forming enterprises is almost one hundred percent, the population of single-industry towns does not have a choice of a job. The solution to the problem of employment of the population of single-industry towns is possible through effective internal migration.

Interest in the concept of territorial clusters and cluster policy in the structure of economic development, both in foreign countries and in Russia, has especially increased in the last decade. The development of clusters is formalized in the cluster policy. Cluster policy uses effective tools to stimulate territorial development, which is manifested in an increase in employment, an increase in the competitiveness of territorial production systems, growth budget revenues and etc.

The advantage of cluster policy is that it attaches high importance to the microeconomic component of economic development, as well as to the territorial and social aspects of economic development. In addition, cluster policy uses effective tools to stimulate territorial development, which is manifested in an increase in employment, an increase in the competitiveness of territorial production systems, an increase in budget revenues, etc.

To date, a feature of the process of clustering the economy is the active role of state authorities in identifying clusters, supporting cluster initiatives, stimulating their development and monitoring the effectiveness of clustering processes.

The main goal of the cluster policy is to ensure rapid development and increase the competitiveness of the economy and social sphere of the region based on the formation and strengthening of integration relations between organizations of different industries and activities that mediate the development and effective use scientific and technological, personnel, production potentials of the subject of the Russian Federation.

The main objectives of the implementation of cluster policy at the territorial level are:

• - development of a general concept for the formation and development of cluster structures;
• - distribution of powers in the field of cluster policy; support for cluster initiatives for the development of advanced industries in the territories;
• - creation and development of cluster infrastructure; formation of the structure and tasks of cluster members, etc.

cluster policy represents an interconnected sequence of influences of public authorities on clustering processes. It includes a set of forms, methods and tools through which it is possible to ensure the effective functioning of cluster formations, which are discussed in detail in the works.

To improve the efficiency of managing the processes of clustering the socio-economic space of the region, we have developed an algorithm for clustering the regional space and managing the cluster development of the regional space. On fig. Figure 2 shows a fragment of the proposed algorithm, which demonstrates the stages of formation and implementation of cluster policy, taking into account the specifics of the spatial structure of the regional economy.

The implementation of cluster policy is aimed at optimizing the development of territories based on the use of new technologies that can initiate the development of cluster formations for predetermined goals.

It is advisable to form a cluster policy in relation to groups of regions that are homogeneous in terms of the level of general economic and investment development. To substantiate the necessary and sufficient composition of indicators characterizing these groups, the cluster analysis method is used for indicators that reflect the totality of economic characteristics of regions (GRP volume, availability of fixed assets, production volumes (general and by type of activity), retail trade volume, investments, innovative activity, population, etc.). The prevalence of clusters in the economy, rather than separately operating companies, is very important for regional development, especially in cases where there is a high geographical concentration of enterprises in interconnected industries. The development of a cluster as a new form of management, economic interaction and connections makes it possible to achieve a certain significant socio-economic effect in the region.

Cluster policy has become one of the main directions of state policy to increase national and regional competitiveness in developed and developing countries over the past 10 years. This type of economic policy, as a tool for ensuring the competitiveness of the economic development of regions, has become widespread in almost all countries of the world. At the same time, it differs depending on the composition of participants and structure, types of products and services provided, on the characteristics of the location, as well as on the level and stage of development at which they are located.

Cluster policy is widespread both in the form of well-defined policies and other policy initiatives such as regional strategies or activities to support the local production system.

Rice. 2.

Interest in the concept of territorial clusters and cluster policy in the structure of economic development, both in foreign countries and in Russia, has especially increased in the last decade. The development of clusters is formalized in the cluster policy. As a result of the analysis of the functioning of cluster policy in individual countries of the world economy, two main models for the implementation of cluster policy have been formed (Table 3)

Cluster Policy Models

Table 3

Based on the analysis of the development of cluster policy in the countries of the world, it can be concluded that it is necessary to implement a "mixed" model of cluster policy that can link the interests of the state and business on the basis of existing or developing infrastructure and cooperation ties.

Each state develops its own approaches to the formation of clusters and their management and, accordingly, organizes the activities of state bodies responsible for the implementation of the national industrial strategy for the competitiveness of the territory in its own way (Table 4).

Studying the experience of various countries, two main approaches (directions) can be distinguished contemporary politics in relation to supporting the formation of clusters: ascending and descending. The bottom-up approach focuses on ensuring the efficient functioning of the market and the elimination of market shortages. The starting point is market-driven initiatives where the government acts as a facilitator and regulator, but does not set inviolable and limited national and regional priorities.

Implementation of cluster policy in world practice

Table 4

In a top-down approach, the government (in consultation with industry and research agencies) sets regional and national priorities, formulates an enabling vision for the future (before the formation of a dialogue process), selects the actors to be involved in the dialogue. This approach is typical for the Scandinavian countries.

As a result of the analysis, it was revealed that the cluster policy is implemented through national and regional cluster programs. It was also determined that an important element of cluster policy is the identification of sources of funding and organizations responsible for the implementation of these programs.

The development of clusters in the region presupposes the existence of a "zero" cycle, on which the prerequisites and general conditions for the formation of future cluster formations are created, which, in turn, determines the need for instrumental support for cluster development. The results of the analysis of the experience of developing cluster development tools are presented in Table. 5.

In many foreign countries, clusters have already been formed in various sectors of the economy, which are successfully functioning and allow us to judge not only the need to form clusters, but also the effectiveness of their work, both on the part of the cluster members, and within the region and the country as a whole. For Russia, as well as for other countries, there is a need to activate existing and search for new sources and factors that can ensure a positive dynamic of economic development. The analysis of the developments of foreign scientists revealed the importance of state structures and scientific institutions in the formation of a cluster policy for the development of territories and made it possible to determine the main sectoral directions for clustering the economy of foreign countries (Table 6).

An analysis of the main sectoral areas of clustering of the economies of foreign countries identified in the course of the study allows us to draw the following conclusions: the national characteristics of the existing cluster policy determine the direction of cluster initiatives; strategic cluster alternatives are determined by national characteristics and the adopted cluster concept; countries' cluster policies differ in the level of government intervention in the clustering process; to assess the feasibility of a cluster strategy for the development of a territory, it is necessary to correlate the level of investment potential and the level of investment activity; methodological foundations the formation of a territorial cluster strategy has not been developed.

Table 5

Composition of a set of cluster policy instruments to support and develop clusters in

various countries

Table b

The main sectoral directions of clustering the economy of foreign countries

The structure of the Russian economy differs from the foreign one, so direct borrowing of cluster policy institutions is impossible. It is necessary to selectively use foreign experience. Therefore, to develop an effective cluster policy in Russia, it is proposed to use benchmarking based on a comparative analysis of the experience of identifying and forming clusters in such countries as France, Spain, Norway, Italy, Great Britain, Austria, USA, Finland, Denmark, etc.

In Russia, cluster policy as an effective tool for improving the competitiveness of regions is just beginning to be introduced. Positive factors for the development of cluster policy in Russia are: the presence of extensive experience in the formation and development of territorial production complexes and various forms of cooperation; high level of intellectual potential; development of technological infrastructure and technological culture. As constraining factors are: weak ties between research institutions and business; low quality of the business climate and low efficiency of industry associations; insufficiently high level of trust between representatives of business, science and government.

The opinion of the authors about the formation of regional cluster policy is the assumption that it is necessary to actively encourage potential clusters that can give impetus to development in order to create growth poles. In this regard, the use of a cluster approach based on proactive stimulation of propulsive industries, the creation of clusters on their basis - “growth poles” in the regional economy and an increase in the effectiveness of public policy on this basis, as well as the adaptation of cluster policy instruments, is becoming increasingly relevant in the practice of public administration.

The mechanism for implementing the cluster policy makes it possible to ensure the effective development and implementation of cluster projects. It includes a set of forms, methods and tools, the invariant components of which are: institutional support, including the institution of public-private partnership; economic, organizational and financial support (strategies, targeted programs, state and regional orders for cluster products, state incentives for the development of innovations, targeted loans and subsidies, etc.); marketing and information support.

The implementation of the mechanism of territorial alignment and smoothing of spatial polarization is impossible without the support of the leading enterprises of the region, the restructuring of the economy and the maximum use of natural, human and production potentials. It can be concluded that the cluster policy in Russia should be implemented taking into account the specifics of the spatial structure of the regional economy.

Conclusion - a logical direction for regulating the economic development of Russia is the development and implementation of a special section of state policy - cluster policy, as well as the creation of favorable conditions for the emergence and development of cluster initiatives, but cluster policy in Russia should be implemented taking into account the specifics of the spatial structure of the regional economy.

More than half a century of experience of the leading countries of the world shows that cluster policy is still the most effective tool for promoting the development of a post-industrial globalized economy. The creation of clusters makes it possible to use the competitive advantages of the territory, since a group of companies from related industries, as well as enterprises that support their activities, directly affect the development of the region and the country's economy as a whole.

concept

In industrial policy, a cluster is understood as a set of geographically localized companies related by industry, the infrastructure that ensures their activities, including scientific and educational institutions, suppliers of equipment and components, organizations providing consulting and specialized services.

The clusters include both housing and commercial real estate, educational institutions and other facilities that ensure the vital activity of people and organizations working in this cluster. Interrelated groups of companies are formed where it is necessary to develop key, innovative areas. The most successful clusters allow for a technological breakthrough and the formation of new market niches.

Cluster policy is a set of interrelated actions that is designed to stimulate and support private business and local governments in their efforts to create and develop clusters. State bodies can initiate the creation of industry groups of companies, but with the obligatory participation of regional authorities.

A bit of history

The first clusters began to form around the 1950s and 1960s in North America and Western Europe. These were local programs to support, as a rule, types of business traditional for the area. Around the 1970s, large-scale national programs to support the development of certain groups of enterprises began to appear, and since the second half of the 1990s, such cluster policy measures have already worked in all developed countries.

Clusters have become an important and effective tool for economic policy and the implementation of the country's development strategy. The amount of funds directed from the state and local budgets has increased significantly. Long-term practice of implementing cluster programs in the leading countries of the world has shown its effectiveness.

For example, the BioRegio biocluster development project allowed Germany to become a leader in the biotechnology sector, was allocated 700 million euros in funding, which allowed the industry to grow by 30% during the period of the program.

Types of clusters

There are various classifications. If we take as a basis the type of backbone organization around, in cooperation with which a group of companies is formed, then two types are distinguished. The main, and often initiative is:

• A large-scale enterprise, anchored around which are usually formed technologically interconnected groups of enterprises. For example, in many countries, next to large enterprises producing primary products from hydrocarbons - ethylene, ammonia, enterprises are being built that further produce consumer products from these raw materials.
• An organization that determines economic development (associations, chambers of commerce and industry, regional agencies). Usually, specialized cluster policy agencies, which can be both public and private, are engaged in initiation and management.

Typology

According to the core of the cluster, the type of common and unifying features, the following types of clusters are distinguished:

• based on a complex technological basis;
• developing activities traditional for the region, which was typical for the early periods of cluster policy development, for example, tourism clusters in Italy and Austria;
• enterprises connected with each other by contractual relations;
• intersectoral clusters;
• a network formed by several clusters belonging to different sectors of the economy and characterized by a high degree of aggregation, for example, chemical and automotive industries.

Categories

A regional cluster is formed in a certain local environment, spatially limited by the agglomeration. Such clusters usually consist of small and medium-sized enterprises that concentrate on taking advantage of social capital and geographic location.

Policy Goals

The main goal of cluster policy is to achieve a high level of development, sustainable growth, diversification of the economy by increasing the competitiveness of enterprises. At the same time, all entities participating in the work of clusters, including suppliers of equipment and components, companies that provide the work process, including service, consulting, research and educational organizations, receive an incentive for development.

The goal of cluster policy is also the development of key, strategic technologies and industries, when a country seeks to achieve an advantage in the global high-tech market.

Directions

Despite the fact that states use a variety of tools for the development of industry, the main directions of cluster policy are determined.

Promoting institutional development in many countries is the main direction of state influence, it includes the creation of a specialized agency that initiates and develops industrial clusters, carries out strategic planning, determines specialization and spatial distribution.

The development of mechanisms for supporting projects aimed at the introduction of high technologies, modern management methods, and increasing the efficiency of interaction is being developed. In many countries, within the framework of the cluster policy of the region, there are competitions for obtaining funding, which is awarded to the enterprise that has provided the most promising projects.

The main direction is the creation of favorable conditions for development, attraction of investments in cluster infrastructures, including engineering networks and real estate, improving the quality of labor resources and providing tax incentives and preferences.

Main goals

The cluster policy of any state is primarily aimed at creating conditions for development. At the same time, for its effectiveness, it is necessary to solve the following tasks:

• formation of conditions, including the development of strategies that ensure the operation of high-tech enterprises, contributing to an increase in the competitive advantages of group members;
• providing effective support, including small and medium-sized businesses, attracting investments, developing innovation and industrial policy, engineering infrastructure, export promotion;
• providing consulting, methodological and educational assistance to sectoral and regional cluster policy. Coordination of the activities of all participants in the process: the state, local authorities and business.

Models

Depending on the degree of influence and role of the state in the development of cluster policy, two models are distinguished:

• Anglo-Saxon (USA, Canada, Australia), has a significant influence on the formation of clusters of mechanisms of market self-regulation. It works with minimal government intervention, which only has to create conditions for cluster initiatives and reduce barriers for initiators. Regional cluster policy is responsible for the creation and organization of funding. The central government directly, including financially, supports only groups of enterprises that are of strategic importance for the national economy.
• Continental (including Japan, Sweden, South Korea), here the state plays the most active role in the implementation of cluster policy. State bodies carry out activities to initiate them, determine priority areas, develop national programs for the development of key industries, create infrastructures and support measures.

Policies

Many determine the competitiveness of a country depending on the degree of development of clusters, which are the result of targeted efforts of the whole society. There are several types of cluster policy, depending on the degree of state participation in their work.

• The first type is a catalytic policy, when state bodies only establish interaction between the entities participating in the cluster's activities. It does not take part in cooperation.
• The second type, when, in addition to the supporting, catalytic function, elements of control over further development and growth stimulation are added.
• The third type of cluster policy, typical for Asian countries, provides for the participation of the state in matters of specialization of enterprises, their development and growth.

Russia in the world of clusters

The development of the cluster policy of the Russian Federation is carried out by the relevant federal ministries and local governments. This policy is aimed at innovative development, development and implementation of the latest technologies and equipment, modern management systems, obtaining special knowledge and identifying new ways to enter global highly competitive markets.

Due to the geographical diversity of territories and the level of economic development of various subjects, many regions of Russia are developing their own specific industries. For example, the cluster policy of the Nizhny Novgorod region is aimed at developing the petrochemical and automotive industries, which have been developed here since Soviet times.

Due to the fact that the country has become more actively involved in the global division of labor, some regions have begun to develop new industries. For example, St. Petersburg, whose cluster policy of the region contributed to the successful development of not only traditional shipbuilding, but also created one of the largest automotive clusters in the country from scratch. Russia is characterized by a more supportive policy, the regions create conditions for attracting investment in certain industries. Basically, the initiators of the creation of clusters are regional authorities.

Cluster policy in Russia is aimed primarily at the development of the innovation component, investment attractiveness, the creation of new high-tech industries and the training of a highly skilled workforce.