The region of focus in this study is Southwest Wales and in particular, the City of Swansea hinterland. The development of this region has a turbulent history stretching over the past two centuries and now faces many new challenges which are similar to those faced by regions throughout the world.
Many new initiatives have been introduced with the aim of addressing the economic challenges in Wales. Such initiatives include the Welsh Assembly Government (WAG) and Welsh European Funding Organization (WEFO) investment at Swansea University in the area of Life Science and NanoHealth. Inclusive to this is the involvement of Swansea University in the Texas/United Kingdom Collaborative, a research network focused on the emerging nano technologies in Texas and the United Kingdom particularly in the emerging Bio/Nano Health cluster in the Southwest region of Wales. This thesis will focus on the challenges related the knowledge economy and in particular the creation of sustainable clusters. These challenges include not only worldwide phenomena such as globalisation and the emergence of the Knowledge Economy, but also an industrial and social legacy that leaves Wales with a relatively weak economic base. Due to this, Wales has many sectors in decline or facing intense pressure from overseas competitors, where low wages make activities such as manufacturing cheaper.
The following sections chart the economic history of Wales, tying it in with the various instruments applied by European, UK and Welsh governmental layers to support economic development. This brief history is discussed in the context of the accompanying political changes.
The Industrial Revolution
While the industrial revolution is often associated with certain technological advances the concept stems not from adoption of a particular invention, but rather from the start of a massive economic restructuring that saw the United Kingdom established as the world’s first industrial nation (Mathias 1983). This restructuring saw the migration of economic activity from agriculture to industry and the migration of the workforce from the countryside to towns and cities (Stiglitz 1999). While agriculture started to become mechanised production industries such as textiles, iron and steel became drivers of economic growth. These industries, however, were not the preserve of manual unskilled labour. ‘Skilled’ workers were required to sign legally enforceable contracts that would prevent them taking their knowledge elsewhere if they received a better offer (Ross 2005). Though this would not relate to circuit layouts in microelectronics or recombinant DNA, it was an early example of practice we now see as common in our modern ‘Knowledge-Based’ economy.
The growth of the Welsh economy was however to be boosted by the great innovation of the industrial revolution; the steam engine (Ross 2005). The great impact of this was not in making the process of mining more efficient but in providing a global market for Welsh coal to power the steamships and locomotives of the British Empire.
As the term revolution implies, this massive industrial growth was not sustained and this led to massive economic and political upheaval in Wales. Despite industrialisation around the world, various factors combined to reduce the scale of the Welsh coal industry long before its eventual collapse in the 1980s. This came about due to a variety of factors including modernisation of industries in competing nations such as Poland, service of overseas markets by closer competitors (such as Canada importing coal from the United States), and even the war reparations enforced on Germany, which lacking cash were settled in coal (Morgan 1981).
Industrial Decline and the ‘FDI’ Era
The massive contraction of the steel industry and the almost complete disappearance of the coal industry during the 1970s and 1980s punctuated a trend of economic decline that had set in during the post-war period (Morgan 2001). To stem this decline, major efforts were made to develop other sectors, including attracting Foreign Direct Investment (FDI). Since the 1970s this restructuring has absorbed 200,000 jobs from these declining industries into a more modern base of services and manufacturing (WAG 2001). This was also accompanied by a gender restructuring of the workforce that included the proportion of women rising from 38% in 1975 to 50% in 1994 (Cameron et al. 2002).
The GDP of Wales has broadly tracked that of the UK as a whole, though trailing somewhat behind, since records began at the beginning of 1970. This lagging performance, is an effect of the structure of the Welsh economy relying heavily on low value-add employment, compounded by higher rates of economic inactivity in Wales (and particularly the West Wales and Valleys region), along with lower productivity per employee as shown in Table 1 (WEFO 2004).
| Industrial Sector | Wales | UK |
|---|---|---|
| Agriculture, hunting, forestry and fishing | 12.8 | 22.6 |
| Mining, quarrying, including oil and gas Extraction | 55.1 | 60.0 |
| Manufacturing | 33.9 | 32.8 |
| Electricity, gas and water supply | 98.2 | 105.7 |
| Construction | 18.9 | 20.9 |
| Wholesale and Retail Trade | 22.4 | 25.0 |
| Transport and communication | 30.6 | 35.1 |
| Public administration and defence | 20.4 | 26.1 |
| Education, health and social work | 17.6 | 18.2 |
| Other services | 5.3 | 4.7 |
| Total | 22.8 | 25.1 |
The Regional Development Agency Approach
This massive economic pressure and the rise of nationalism led to the UK government establishing development agencies in Wales and Scotland in 1976 (Cooke and Clifton 2005). In Wales this took the form of the Welsh Development Agency (WDA). Its core strategy to provide job creation was to pursue Foreign Direct Investment (FDI) from around the globe. Though much of the literature mentioned in the following section focuses upon FDI in the UK and Wales, it should be noted that this phenomenon of economic development through FDI occurred throughout the European Union (EU) and Organisation for Economic Cooperation and Development (OECD) (Barrell and Pain 1997), including the United States (Friedman et al. 1992). However, FDI interventions occurred at (proportionally) higher rates in the EU than the OECD, which were higher in the UK than the EU, and higher in Wales than the UK as a whole.
The prime hunting ground for such opportunities was the ‘Tiger economies’ of South-east Asia and the following decades would see names such as Panasonic, Sony and LG all establish operations in the region, mainly of an assembly nature. The attraction for these investors included access to markets, low wages and other financial incentives. Access to markets is seen as a key factor in the location decisions of FDI as discussed by various observers, for example, the increase in FDI in Spain following its joining of the EU (Friedman et al. 1992). This has now become a challenge for older EU regions in competition with the newly joined countries of Eastern Europe. However, the prizes of attracting FDI, which could bring thousands of jobs at a time, were massive. This often led to interregional competition for investments with packages of aid being offered including grant aid, assistance with planning issues etc. (Phelps and Tewdwr-Jones 2001, Cooke and Clifton 2005). Alongside these packages, however, was what often figured as the key determinant in attracting FDI (in both Wales and other regions): a low wage rate (Friedman et al. 1992).
The WDA proved to be most successful at this competition, securing over two thousand projects between 1983 and 2000 (Salvador and Harding 2005), consistently attracting between 15-20% of FDI coming to the UK between 1983 and 1993 (Cooke 1998). One major investment could deliver massive opportunities to the surrounding region and much like the iron works of old, would become the prime employer in a town or region (Mathias 1983). The approach of the WDA in speculatively preparing sites across Wales to attract investors was likened by some commentators to the “build it and they will come” concept seen in the American movie ‘Field of Dreams’ (Cooke 2005).
This successful attraction of FDI into Wales meant that by 1992, 30% of Welsh manufacturing employment, some 68,000 workers, were employed in foreign-owned firms compared to 45,000 just over a decade earlier in 1981; a proportional increase double that of the UK as a whole (Cameron et al., 2002). The increase in FDI during this period led to much research to understand issues such as policies to support its role in regional economies (Gripaios et al. 1997, Young et al. 1994); its ‘embeddedness’ within the region (Phelps et al. 2003, Phelps et al. 1998); the ‘quality’ of investments (Gripaios et al. 1997); and their role in technological change and technology transfer (Barrell and Pain 1997).
Observers note in retrospect that this focus on inward investment may have led to the missed opportunity of investing in entrepreneurship and indigenous development that received greater attention in regions such as Scotland and Northern Ireland (Cooke and Clifton 2005).
Other criticisms of FDI include weak linkages with the regional economies within which they reside, such as supply chains (Young et al. 1994) and the ‘quality’ of the jobs provided, which were primarily assembly functions in branch plant operations. However, where the Multinational enterprise (MNE) is investing far from its home country the linkages it establishes are generally found to be stronger (Rodriguez-Clare, 1996). Young et al. (1994) describe strategies that can be applied to make use of MNE FDI in the development of cluster formation through creation of linkages with local R&D. Such linkages may be with universities and development of supply chain opportunities.
By the end of the century the Steel industry had suffered greatly in the face of global competition and the start of a phase of massive sectoral consolidation was set to continue into the new millennium. Meanwhile the efforts of the Thatcher government meant the coal mining industry had virtually been destroyed, leaving a very different Welsh economy to that which had fuelled the industrial revolution and transformed the entire world.
Wales, however, was to face political upheaval on a scale to match that of the changes in its economy, as the subsequent Labour government promised a referendum for a National Assembly. The proposal was for an Assembly, which would have responsibility for certain limited portfolios (including particularly challenging ones such as Health and Education), something not attempted since a previous referendum (also attempted by a Labour UK Government) was defeated by a margin of 80% in 1979 (Keating 1998).
The National Assembly for Wales
Following successful referenda on the proposals in Scotland and Wales, the National Assembly for Wales and the Welsh Assembly Government (WAG) took over control of affairs including health, education and economic development. Scotland regained its parliament, which it lost in the act of Union in 1707, providing greater control for Scots over their own affairs. This marked a massive political change for the devolved countries and the UK as a whole, marking the greatest constitutional change in what was seen to be an ongoing process of devolution (Keating 1998) since the abolition of the House of Lords veto in 1910 and the establishment of the Irish Free State in 1921 (Morgan 2001).
Since its integration with England in 1536, Wales had long been regarded as being tied more closely with England than its northern Celtic neighbour, despite clear religious and linguistic differences (Keating 1998). This is further reflected by the Welsh Office having only existed since 1965, while Scotland had enjoyed such representation within Westminster since 1885. This is seen, along with a perceived lack of consensus amongst the Welsh people for devolution, as one of the reasons for a lower level of power being devolved to Wales (Salvador and Harding 2005).
The ‘Assembly’ itself is a body that encompasses the legislative functions (National Assembly for Wales) and the executive functions (WAG). The legislature comprises 60 elected members representing constituencies and regions. Much of the power of the Assembly is held by the First Minister who appoints a cabinet of Ministers to hold portfolios including Education, Health, Culture, Local Government, and Economic Development and Transport. This structure is shown in Figure 1, cited from Salvador and Harding (2005). However, the level of devolved power given to the Assembly is far less than that afforded to Scotland and this is cited by some as a debilitating factor in the Assembly’s ability to deliver economic revival (Cooke and Clifton 2005).
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Funding for the Assembly is provided by the UK Government with adjustments made according to the Barnett formula that effectively sees Wales receive 6% of UK funds, roughly in line with its proportion of population. This mechanism is however seen by many, including its creator, as a badly designed formula in desperate need of replacement that has operated to the detriment of Wales (McLean and McMillan 2003). However, it should be noted that recent years have seen additional funding from the UK Treasury in reflection of support it is receiving from EU Structural Funds (Salvador and Harding 2003), which itself represents an important source of funding. However, this represents only 1% of the annual Assembly budget (Brooksbank et al. 2001).
In terms of economic development the Welsh Development Agency was now accountable to a Cardiff based minister, rather than the Secretary of State for Wales at the Welsh Office in London. The budget for economic development and transport in 2005-06 totalled just under £1.5bn, or 12% of the total Assembly expenditure. It should though be noted that this includes a significant portion for transport. Approximately £120m p.a. has been allocated for ‘Innovation and Competitiveness’ with a further £80m p.a. for ‘Entrepreneurship’ (WAG 2005).
Much commentary and study has been of this transition, often in comparison with the ‘settlements’ in the other devolved regions of the United Kingdom (Morgan 2001, Salvador and Harding 2005, Cooke and Clifton 2005), as a new level of politics was introduced to Wales. Some observers argue the asymmetric settlements have led to varying outcomes for individual regions (Cooke and Clifton 2005), while others such as Morgan (2001) describe the risk of highlighting regional inequalities and developing interregional rivalry rather than co-operation. The observations of Cooke and Clifton (2005) are of particular relevance to this study. They argue that a project such as Technium is an ‘overambitious’ initiative and a return by the Assembly to the ‘Field of Dreams’ approach as part of a ‘precautionary’ approach to economic development.











