On 6 May, a webinar ‘Cluster Policy in Practice: The Role of Regional Development Agencies in Cluster Development’ was held. The event brought together Ukrainian and European experts to discuss practical models for implementing cluster policy at the regional level.

The key topic was the role of regional development agencies (RDAs) as operators of new support programmes for clusters formed in Ukraine.

Clusters4Regions: From programmes to implementation

Opening the webinar, Oleksandr Yurchak, Executive Director of the Ukrainian Cluster Alliance, focused on the practical phase of implementing the Clusters4Regions initiative.

The initiative is implemented by the Ukrainian Cluster Alliance at the request of the Ministry of Economy, Environment and Agriculture of Ukraine, with the support of the Swiss-Ukrainian UCORD Project.

‘Within the Clusters4Regions Project, we have created six regional cluster development programmes. We have not only developed them – they have already been validated. And this year, these six regions are embarking on their implementation,’ he noted.

These regions are Sumy, Vinnytsia, Khmelnytskyi, Ternopil, Volyn, and Odesa.

However, he added that the system is still in its early stages:

‘We do not yet have a national cluster policy. We are only just moving towards developing one. And in fact, the regional level is currently the testing ground for putting these approaches into practice.’

RDAs will play a key role in this process:

‘In fact, regional development agencies will be the operators or implementers of these programmes. And the main question for them is how to implement these programmes and which tools to choose. Because, technically, there are dozens of tools.’

That is what determined the focus of the webinar: the search for effective practical solutions.

Austria: Clusters as a system of joint innovation projects

Werner Pamminger, CEO of Business Upper Austria, presented the experience of Upper Austria, where cluster policy has been practiced for over 25 years.

He emphasised that a cluster is not merely a network of companies:

‘If your cluster has 400 or 500 companies, this is not yet a success. Success is when these companies work together on specific innovation projects, creating new products or services.’

He paid special attention to the long-term nature of the policy:

‘We are not talking about a year or two. Cluster policy is a long-term effort. Only a long-term focus can improve the ecosystem.’

The funding model is also important:

‘When we started, cluster initiatives were mainly funded by the state. But from the very beginning, the goal was to move towards self-funding. And now, around two-thirds of the funding comes from the private sector.’

The role of the state, in this case, is to launch the system:

‘State funding is like the coal needed to start the engine. But then the system has to run on a different fuel – provided by business.’

He also emphasised the cultural aspect:

‘Everything revolves around a culture of cooperation and trust. Trust compensates for a lot – the complexity of contracts, uncertainty, risks.’

Germany: Not all clusters add economic value

Dr. Gerd Meier zu Koecker, Managing Director of Regional Transformation at VDI/VDE Innovation + Technik GmbH, emphasised that the term ‘cluster’ encompasses models that vary greatly in terms of effectiveness.

‘We must make a clear distinction: not all clusters are tools for regional development. Some of them serve a networking function but do not create significant added value.’

He singled out several types of clusters, ranging from simple networks to comprehensive development tools.

The most valuable for the region are those that:

• work with a broad ecosystem;
• implement innovative projects;
• integrate business, science, and government.

‘The point is not merely to bring companies together. It is about supporting all participants in the regional ecosystem and creating added value for the region.’

He emphasised the need for institutional capacity:

‘One or two people cannot manage a cluster organisation. This requires a team of at least 8–10 specialists.’

Catalonia: Focus on services, not grants

Emma Vendrell, a representative of ACCIÓ agency (Catalonia), presented a model that focuses not on funding but on developing the capacity of clusters.

‘Most cluster programmes around the world focus on funding. We, on the other hand, focus on services – strategic support, training, and international cooperation.’

According to her, this ensures the sustainability of the system:

‘We work with clusters on a daily basis, helping them with strategic decisions, development and international relations. But at the same time, they remain independent organisations.’

She also emphasised the importance of adapting the experience:

‘Cluster policy is highly dependent on the region. You can take inspiration from others, but each region must find its own model.’

Poland: Funding must be tied to results

Monika Antonowicz, a Polish Agency for Enterprise Development Expert, highlighted the transformation in approaches to cluster funding.

‘We are not interested in supporting clusters simply as organisations. We want to pay for the services and results they deliver.’

This means a shift to a model where it is the function, not the structure, that is funded:

‘If a cluster provides the best service, for example in digitalisation, that cluster receives funding. In other words, we fund the impact, not the fact that the cluster exists.’

Takeaways for Ukraine

The webinar participants agreed that an effective cluster policy requires:

• long-term consistency;
• a combination of public and private funding;
• institutional capacity of operator organisations;
• a focus on joint innovation projects;
• clear linking of funding to results.

However, Ukraine still faces systemic challenges, including:

• insufficient coordination between levels of authority;
• lack of sustainable financial mechanisms;
• limited institutional capacity.

The Clusters4Regions initiative is the first coordinated attempt to implement cluster policy at the regional level in Ukraine.