Table Of ContentO
E
C
D
OECD Reviews of Regional Innovation R
e
v
15 MEXICAN STATES ie
w
s
o OECD Reviews of Regional Innovation
Despite macroeconomic stability in recent years, Mexico still suffers from stagnant productivity f R
growth. It is losing ground with respect to several competing economies and among OECD countries e
g
it has one of the highest rates of inequalities between regions. io 15 MEXICAN STATES
n
Mexico’s long-term competitiveness in a global context will require greater public and private a
action to spur innovation and economic growth in regions throughout the country. At the national l In
n
level, increased attention to policies for regional development, science, technology and innovation, o
v
enterprise, and higher education could boost clusters and regional innovation systems. States a
t
have also taken policy action, but they too could do more to address the existing gaps in terms of io
n
innovation and economic performance.
This report reviews how both national and state policies in Mexico can better support regional
innovation systems and includes profiles of 15 states. It will be of interest to policy makers, firms and
others active in promoting innovation and regional economic development.
ALSO AVAILABLE IN THE OECD REVIEWS OF REGIONAL INNOVATION SERIES:
Piedmont, Italy (2009)
North of England, United Kingdom (2008)
Globalisation and Regional Economies: Can OECD Regions Compete in Global Industries? (2007)
Competitive Regional Clusters: National Policy Approaches (2007)
1
The full text of this book is available on line via these links: 5
www.sourceoecd.org/regionaldevelopment/9789264060128 M
e
www.sourceoecd.org/scienceIT/9789264060128 x
www.sourceoecd.org/governance/9789264060128 ic
a
www.sourceoecd.org/industrytrade/9789264060128 n
S
Those with access to all OECD books on line should use this link: ta
www.sourceoecd.org/9789264060128 te
s
SourceOECD is the OECD online library of books, periodicals and statistical databases.
For more information about this award-winning service and free trials ask your librarian, or write to us
at [email protected].
ISBN 978-92-64-06012-8 -:HSTCQE=U[UVW]:
04 2009 06 1 P
www.oecd.org/publishing
OECD Reviews of Regional Innovation
15 Mexican States
ORGANISATION FOR ECONOMIC CO-OPERATION
AND DEVELOPMENT
The OECD is a unique forum where the governments of 30 democracies work together to
address the economic, social and environmental challenges of globalisation. The OECD is also at
the forefront of efforts to understand and to help governments respond to new developments and
concerns, such as corporate governance, the information economy and the challenges of an
ageing population. The Organisation provides a setting where governments can compare policy
experiences, seek answers to common problems, identify good practice and work to co-ordinate
domestic and international policies.
The OECD member countries are: Australia, Austria, Belgium, Canada, the Czech Republic,
Denmark, Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Japan, Korea,
Luxembourg, Mexico, the Netherlands, New Zealand, Norway, Poland, Portugal, the Slovak Republic,
Spain, Sweden, Switzerland, Turkey, the United Kingdom and the United States. The Commission of
the European Communities takes part in the work of the OECD.
OECD Publishing disseminates widely the results of the Organisation’s statistics gathering and
research on economic, social and environmental issues, as well as the conventions, guidelines and
standards agreed by its members.
This work is published on the responsibility of the Secretary-General of the OECD. The
opinions expressed and arguments employed herein do not necessarily reflect the official
views of the Organisation or of the governments of its member countries.
Corrigenda to OECD publications may be found on line at: www.oecd.org/publishing/corrigenda.
© OECD 2009
You can copy, download or print OECD content for your own use, and you can include excerpts from OECD publications, databases and multimedia
products in your own documents, presentations, blogs, websites and teaching materials, provided that suitable acknowledgment of OECD as source
and copyright owner is given. All requests for public or commercial use and translation rights should be submitted to [email protected]. Requests for
permission to photocopy portions of this material for public or commercial use shall be addressed directly to the Copyright Clearance Center (CCC)
[email protected] or the Centre français d'exploitation du droit de copie (CFC) at [email protected].
3
FOREWORD –
Foreword
The importance of regional dynamics in supporting innovation is widely recognised.
Strong dynamics of innovation generation in regions are crucial for achieving national
innovation policy objectives. In addition, innovation performance can contribute to
improving the overall economic competitiveness of individual regions. Policy
recommendations are therefore being sought by both science and technology and regional
policy actors, as well as the regions themselves.
OECD countries and regions are nevertheless struggling with how to best promote
regional innovation. How should national innovation policies take into account this
regional dimension (i.e., the importance of “place”)? How can regional actors support
innovation that is relevant for their specific regional context? This role sharing in a multi-
level governance for innovation is a new area for OECD countries.
The OECD launched in 2007 the series OECD Reviews of Regional Innovation to
address this demand by national and regional governments for greater clarity on how to
strengthen the innovation capacity of regions. These reviews are part of a wider project
on competitive and innovative regions of the OECD Territorial Development Policy
Committee. This work also supports the OECD Innovation Strategy. The series includes
both thematic reports and reviews of specific regions.
This study, OECD Reviews of Regional Innovation: 15 Mexican States, took place
concurrently with another study, OECD Reviews of Innovation Policy: Mexico. The two
studies are complementary to provide a coherent package of recommendations to Mexico
for both national and sub-national levels to work effectively together to support
innovation-led sustainable economic growth throughout the country.
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
4 -
ACKNOWLEDGEMENTS
Acknowledgements
A number of external contributions have been made to this OECD report. Consultant
contributions include: Enrique Dussel Peters, Professor at the Graduate School of
Economics, Universidad Nacional Autónoma de México, with support from Professor
Miguel Angel Mendoza in the econometric analysis, and Cristina Vázquez and Alejandro
Pérez in the statistics components; Mr. Jorge Gabriel García Rojas Alarcón; and
Mr. Daniel Hugo Villaviciencio Carbajal, Professor at the Universidad Autónoma
Metropolitana Unidad Xochimilco with support from Edgar Bañuelos, Eduardo Flores
and Israel Musiño. The Inter-American Development Bank through the Science and
Technology Division of the Social Sector as well as the Multilateral Investment Fund
participated in this review through joint site visits, comments and consultant inputs from
Clemente Ruiz Duran, Professor at the Graduate School of Economics, Universidad
Nacional Autónoma de México, and Carlo Pietrobelli, Professor of International
Economics at Roma Tre University. Peer reviewers to this review included
Mr. Robert M. McKinley, Associate Vice President for Economic Development, The
University of Texas at San Antonio (United States) and Mr. Juan José Mangas, Advisor,
Cotec Fundación para la innovación tecnológica (Spain). Alberto Saracho Martínez of
the Fundación IDEA and Leopoldo Rodríguez Sánchez President of the Asociación
Mexicana de Directivos de la Investigación Aplicada y el Desarrollo Tecnológico
(ADIAT) also made valuable comments to the report.
This publication was co-ordinated and drafted by Karen Maguire and
Carlos Marquez-Padilla of the OECD Secretariat under the supervision of Mario Pezzini,
Deputy Director of the Public Governance and Territorial Development Directorate.
Additional analyses were provided by Javier Sanchez-Reaza, Patrick Dubarle and
Brunella Boselli, also of the OECD Secretariat. Jeanette Duboys prepared this document
for publication.
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
5
TABLE OF CONTENTS –
Table of Contents
List of Acronyms .............................................................................................................. 11
Assessment and Recommendations ................................................................................ 15
Introduction .................................................................................................................... 15
The economic and innovation challenges in Mexico ..................................................... 16
How can national policy help? ....................................................................................... 18
What should states do? ................................................................................................... 27
What governance tools support the policy objectives? .................................................. 30
Methodological Introduction .......................................................................................... 35
Part I: Synthesis Report .................................................................................................. 37
Chapter 1: Mexico’s Regional Economic and Innovation Performance ................... 39
Introduction .................................................................................................................... 39
The national context ....................................................................................................... 39
Macroeconomic stability but insufficient growth ....................................................... 39
Several factors limiting economic growth .................................................................. 42
The regional perspective: a tale of different “Mexicos” ................................................ 57
Regional economic performance ................................................................................ 57
Territorial disparities .................................................................................................. 59
Poverty and inequalities ............................................................................................. 61
Sources of persisting GVA per capita differences ..................................................... 63
The regional innovation dimension................................................................................ 88
Inputs for innovation .................................................................................................. 90
Linkages and interactions for innovation ................................................................... 95
Output indicators ........................................................................................................ 99
Annex 1.A1...................................................................................................................... 106
Manufacturing industry specialisation ..................................................................... 106
Manufacturing specialisation index .......................................................................... 109
A regional perspective on FDI in Mexico ................................................................ 110
Chapter 2: National Policies to Support Regional Clusters
and Innovation Systems ............................................................................ 127
Introduction .................................................................................................................. 127
Trends in OECD countries ........................................................................................... 128
Regional development policy: need for national approach with
competitiveness focus .................................................................................................. 129
Enterprise policies ........................................................................................................ 134
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
6 -
TABLE OF CONTENTS
Sectoral policies: place-blind and place-based examples ......................................... 134
FDI policy: need to seek regional spillovers ............................................................ 137
SME policy: general support and networking .......................................................... 142
Science and technology policy: increasingly supporting a “regional” approach ......... 151
Higher education policy: incentives and disincentives ................................................ 160
Chapter 3: Sub-national Initiatives for Regional Clusters
and Innovation Systems ............................................................................ 171
Introduction .................................................................................................................. 171
State programmes for competitiveness ........................................................................ 171
Public and private stakeholder roles in competitiveness strategies .......................... 173
Supporting sectors and clusters .................................................................................... 174
Sectoral priorities common across many states ........................................................ 174
Cluster support: achieving critical mass ................................................................... 176
State level actions to support regional innovation systems .......................................... 184
Science and technology plans................................................................................... 186
Science and technology councils: variations in models and budgets ....................... 189
State level science and technology programmes and federal programme use.......... 190
Annex 3.A1...................................................................................................................... 200
Chapter 4: Multi-level Governance to Promote Regional Competiviness
and Innovation systems ............................................................................ 201
Introduction .................................................................................................................. 201
Responsibilities for regional competitiveness and innovation systems ....................... 201
Municipal level ......................................................................................................... 202
State and federal role sharing to support innovation ................................................ 204
Continuity challenges at all levels of government ................................................... 205
Cross-sectoral co-ordination and “gatekeeper” roles ................................................... 206
National level ........................................................................................................... 206
State level ................................................................................................................. 209
Centralisation and impacts on competitiveness ........................................................... 209
Fiscal centralisation .................................................................................................. 209
Strategies to capture economic benefits of decentralisation-type mechanisms ........ 214
Tools for national and sub-national responsibility sharing and alignment .................. 217
Monitoring performance: transparency, trust-building and programme
effectiveness ................................................................................................................. 220
Annex 4.A1...................................................................................................................... 223
Part II: State Profiles .................................................................................................... 225
Chapter 5: Aguascalientes ........................................................................................... 227
Chapter 6: Chihuahua ................................................................................................. 239
Chapter 7: Coahuila ..................................................................................................... 251
Chapter 8: Colima ........................................................................................................ 263
Chapter 9: Guanajuato ................................................................................................ 275
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
7
TABLE OF CONTENTS –
Chapter 10: Jalisco ....................................................................................................... 287
Chapter 11: Mexico ...................................................................................................... 299
Chapter 12: Michoacan ................................................................................................ 311
Chapter 13: Nuevo Leon .............................................................................................. 323
Chapter 14: Puebla ....................................................................................................... 335
Chapter 15: Queretaro ................................................................................................. 347
Chapter 16: San Luis Potosi ........................................................................................ 359
Chapter 17: Tamaulipas .............................................................................................. 371
Chapter 18: Yucatan .................................................................................................... 383
Chapter 19: Zacatecas .................................................................................................. 395
Bibliography ................................................................................................................... 407
Tables
Table 0.1. Policy trends supporting clusters and regional innovation systems ...... 19
Table 0.2. Policy priorities by type of RIS ............................................................. 27
Table 1.1. Educational attainment of the adult population ..................................... 54
Table 1.2. Classification of OECD and Mexico regions ........................................ 58
Table 1.3. Poverty, inequality and human development in regions ....................... 62
Table 1.4. FDI by region (1994-2007) ................................................................... 79
Table 1.5. FDI/GDP by region ............................................................................... 79
Table 1.6. Regional competitiveness indices ......................................................... 85
Table 1.7. State rankings on regional competitiveness indices .............................. 87
Table 1.8. Industries, technology and innovation................................................. 101
Table 1.9. Gross value added by technology level ............................................... 102
Table 2.1. Policy trends supporting clusters and regional innovation systems .... 129
Table 2.2. Rationale for pan-regional RIS collaboration ..................................... 132
Table 2.3. New regional development policy frameworks:
regional competitiveness ..................................................................... 134
Table 2.4. Sectoral support programmes .............................................................. 136
Table 2.5. FDI spillover channels ........................................................................ 138
Table 2.6. Policy measures to create and deepen MNE-SME linkages ............... 142
Table 2.7. Budget for SME Fund programmes .................................................... 144
Table 2.8. Business incubators and enterprises .................................................... 146
Table 2.9. CONACYT budget .............................................................................. 155
Table 2.10. Utilisation of R&D tax incentive......................................................... 156
Table 2.11. Types of higher education institutions ................................................ 162
Table 2.12. CONACYT centres by region ............................................................. 164
Table 2.13. Scholarships, SNI researchers and basic science support by state ...... 165
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
8 -
TABLE OF CONTENTS
Table 3.1. Prioritised sectors in participating states ............................................. 175
Table 3.2. Elements of state S&T plans ............................................................... 187
Table 3.3. State participation in select innovation and technological
development programmes ................................................................... 196
Table 3.4. State participation in select scientific research programmes ............... 197
Table 3.5. Categorisation of states by type of innovation assets .......................... 198
Table 4.1. Governance sharing for competitiveness ............................................ 202
Table 4.2. Municipalities: number and population distribution by state .............. 203
Table 4.3. National-regional responsibility sharing for innovation policy ........... 204
Table 4.4. Examples of co-ordination bodies for place-based approaches .......... 206
Table 4.5. Empirical results on the effects of decentralisation on
economic growth ................................................................................. 216
Figures
Figure 0.1. Participating states ................................................................................. 16
Figure I.1. Basis for regional competitiveness ........................................................ 35
Figure I.2. Participating states ................................................................................. 36
Figure 1.1. Mexico's growth performance in comparison........................................ 41
Figure 1.2. The sources of persisting real income differences ................................. 43
Figure 1.3. GDP per hour worked and growth in productivity ................................ 44
Figure 1.4. Gross foreign direct investment in comparison ..................................... 46
Figure 1.5. Factors contributing to differences in output ......................................... 47
Figure 1.6. R&D intensity and evolution of gross domestic expenditure
on R&D ................................................................................................. 49
Figure 1.7. Researchers, 2005 .................................................................................. 51
Figure 1.8. Triadic patent families per million population ...................................... 52
Figure 1.9. Scientific articles per million population ............................................... 53
Figure 1.10. Top performers in the PISA science assessment and
country research intensity ...................................................................... 55
Figure 1.11. Student performance and spending per student ..................................... 55
Figure 1.12. Population with tertiary attainment, 2005 ............................................. 56
Figure 1.13. OECD regional classification by income levels and growth rates ......... 58
Figure 1.14. GDP, GDP per capita and growth rates ................................................. 59
Figure 1.15. Marginalisation levels, 2005 .................................................................. 61
Figure 1.16. Factors contributing to differences in regional GVA per head .............. 64
Figure 1.17. Evolution of GDP per worker ................................................................ 65
Figure 1.18. Gini index of inequality of GDP per worker ......................................... 65
Figure 1.19. Regional dispersion in GDP per worker ................................................ 66
Figure 1.20. Percentage of workers in regions with GDP per worker below
the national average ............................................................................... 67
Figure 1.21. PISA results and average schooling years ............................................. 68
Figure 1.22. GDP per worker and tertiary attainment ................................................ 69
Figure 1.23. Distribution of state GDP per capita by main economic sector ............. 71
Figure 1.24. Specialisation in specific low-tech manufacturing industries................ 73
Figure 1.25. Specialisation in specific mid-low tech manufacturing industries ........ 73
Figure 1.26. Specialisation in specific mid-high tech manufacturing industries ....... 74
Figure 1.27. Specialisation in specific high-tech manufacturing industries .............. 74
Figure 1.28. Regional specialisation .......................................................................... 76
OECD REVIEWS OF REGIONAL INNOVATION: 15 MEXICAN STATES – ISBN 978-92-64-06012-8 © OECD 2009
