In what way do national systems of innovation matter for learning, upgrading and innovation processes in services GVCs? A review of the empirical evidence. Partial Draft Paulina Ramirez Birmingham Business School Edgbaston Park RD Birmingham B15 2TT UK [email protected] Paper presented at ECLAC conference 'Offshore services in Global Value Chains: New drivers of structural change in Latin America and the Caribbean?', ECLAC, Santiago, Chile; 18-19 October 2012 Abstract Studies of international production have acknowledge that the ability of firms to learn, upgrade and innovate in global value chains is also influenced by the national institutional systems in which firms are embedded. Little is known however about the nature of the support firms in developing countries require in order to benefit from knowledge flows in GVCs and how the type of support required changes as firms upgrade in GVCs. Based on a thorough review of the literature of existing empirical studies as well as primary data the paper examines the role of national innovation systems on learning and innovation processes in service-based GVCs. Introduction Changes in the organisation, governance, and location of value creating activities associated with the emergence of complex international inter and intra-firm networks has been a major feature of the world economy over the last thirty years and a defining feature of present day globalisation (Dicken 1992; Dunning 1997; Gereffi and Korzeniewicz, 1994). Underpinning the rise of these global networks are two distinct but related trends: (i) the increasing liberalisation of trade and foreign direct investment; and (ii) the increasing disaggregation of value adding activity which can be undertaken either inside firms or acquired from independently-owned internationally dispersed suppliers. To these two trends can be added the increasingly widespread diffusion of ICTs giving rise to the exchange of information across geographical locations. The significance of these innovations in the organisation and internationalisation strategies of firms have been acknowledge by scholars from a variety of distinct disciplines, in some cases leading to new conceptualizations of the multinational firm which focus on the power to coordinate and control international operations even when no ownership rights exist (Dicken, 2007). It is in this context that the concepts of global production networks (GPN) and global value chains (GVC) has been developed to explore the functional integration and governance of internationally dispersed value-adding activities in a variety of inter and intra-organizational networks (Coe et al., 2008; Ernst and Kim 2002; Gereffi et al., 2001, 2005; Henderson et al., 2002). One important implication of changes in the organisation, governance and location of international value adding activities is that in order to understand processes of international knowledge transfer and their impact on national and regional economies and firms it is no longer enough to focus attention on foreign direct investment alone but it is necessary to incorporate into the analysis the cooperative relations between lead firms and their networks of international suppliers, service providers, customers and support institutions such as training institutions and universities (Ramirez and Rainbird 2010). This paper therefore adopts a GVC perspective in order to analyse the processes of learning, upgrading and the development of innovative capabilities amongst MNC subsidiaries and joint ventures as well as with independently-owned suppliers, service providers and customers which are part of global value adding networks. To what extent and in what manner GVC participation offers opportunities for upgrading and the development of capabilities of locally-based firms has been an area of concern for GVC research. Empirical studies of various industries have focused on knowledge flows within these networks of relationships and the mechanisms used by GVC lead firms to transfer knowledge to their suppliers as well as the extent to which they help or hinder the ability of GVC partners to undertake more complex functions. The results from these studies support the notion that GVCs have become important vehicles for international knowledge diffusion (Gereffi 1999; Ernst and Kim 2002; Humphrey and Schmitz 2002; Ramirez et al 2012) however the ability of suppliers to deepen and widen their capabilities including the ability to undertake more complex functions is not automatic but depends on factors such as the ability of suppliers to learn and absorb external knowledge, the nature of industry knowledge-base as well as the way GVCs are coordinated and governed (Humphrey and Schmitz 2002; Gereffi et al 2005; Morrison et al 2008; Schmitz 2006). Whilst much of the research on knowledge flows within GVCs has focused on the motivations of lead firms to disseminate knowledge and know-how to network partners and the mechanisms they use to do so (see Ernst and Kim 2002) the ability of suppliers to learn, absorb and internalise new technological, managerial, and organisational practices has only recently been the focus of attention. Studies of GVCs do acknowledge that the strength of upgrading in these networks depend significantly on the existing capabilities of suppliers and that this, in turn, is strongly influenced by national and regional institutions for knowledge creation and diffusion (Bair 2005; Gereffi et al 2005; Humphrey and Schmitz 2002; Kaplinsky, 2000) however few studies have looked at the impact of national and local systems of learning and innovation on the ability of firms to upgrade in GVCs. Based on a review of existing empirical studies as well as primary data this paper examines the role of national innovation systems on the learning and innovation processes in servicebased GVCs. Empirical studies of service GVCs are analysed to identify references to how national institutions influenced firm-level learning and upgrading. The literature on national institutions is then analysed. From these studies the paper identifies the relevant national institutions that influenced learning and upgrading in services GVCs and the role they played. Whilst most of the studies on upgrading in GVCs have focused on independently-owned suppliers in this paper the impact of national institutions on knowledge flows to MNC subsidiaries and joint ventures as well as to independently-owned suppliers are explored The link between national innovation systems and upgrading in global value chains There are a number of benefits associated with the adoption of a GVC framework to analyse the learning and upgrading opportunities offered by the emergence of inter and intra-firm networks for the organisation international value-creating activities. One of the advantage of GVC analysis is that it focuses not only on FDI flows but also on the market and non-market relationships between lead firms and their networks of international suppliers, service providers, customers and support institutions. The importance of this broader framework is that it not only focuses on the activities of MNCs, their subsidiaries and joint ventures but it incorporates into the analysis indigenously-owned firms whose activities are nevertheless strongly influenced and shaped by the both the opportunities as well as demands and constraints placed on them by these global networks. A second contribution of GVC approach is that it focuses not only on the value and location of FDI flows but also on the nature of this investment by disaggregating the analysis of the value-creating process into sequences of activities (e.g. research and development, purchasing, production, marketing, distribution and logistics) allowing for a more detailed study of the activities located by lead firms in particular countries and the knowledge and skills required by subsidiary or partner firms to undertake them. Studies of services and manufacturing GVCs have therefore been helpful in identifying the types of skills and knowledge required to undertake particular activities and functions (including the knowledge and skills require for upgrading) (See for example Gereffi and Fernandez-Stark 2010 and Fernandez-Stark et al 2012; Hardy et al 2011 in the case of services). Though it is not clear from GVC analysis how firms or countries develop the required skills and knowledge. Empirical studies of GVCs have shown that in a number of industries these international networks have become significant vehicles for international knowledge diffusion, learning and upgrading (Bair and Gereffi, 2003; Ernst and Kim, 2002; Gerefffi, 1999; Gereffi et al., 2005; Humphrey and Schmitz, 2002; Sturgeon, 2002) as network lead firms provide information and in many cases also technical and managerial assistance as well as training to their network suppliers and partners. Evidence also indicates that in many instances the increasingly more stringent demands by lead firms on quality, consistency and speed of response from their supply base has had a positive impact on selected suppliers, driving them towards more complex and higher-value-added activities of the value chain. Research has also shown however that the ability to upgrade to more knowledge-intensive activities is not automatic and that local suppliers will only progress to more complex activities if they have already developed strong in-house learning routines. This suggests that participation in GVCs will enhance capabilities where they already exist but will not create them from scratch and that it is not enough for firms to be exposed to external knowledge to upgrade their capabilities, they must also make significant efforts to internalise, adapt and use this knowledge (Ernst and Kim 2002; Ramirez et al 2012). Moreover, case studies of specific industries have also shown that lead firms who want to retain control of functions considered strategic can also hinder upgrading by local firms to more complex functions (Schmitz 1999; Schmitz and Knorringa 2000). Therefore, though generally positive about the possibilities for knowledge transfer, more nuanced studies that apply the GVC framework acknowledge the existence of considerable challenges for learning and upgrading in these networks and that a complex relationship exists between the nature of the industry and knowledge involved, the ability of suppliers to absorb and use external knowledge as well as the way GVCs are governed (Humphrey and Schmitz, 2002; Schmitz 2006; Morrison et al 2008; Ponte and Ewert 2009; Pietrobelli and Rabellotti 2010). Despite its significant contribution, one of the weaknesses of the GVC literature has been the lack of attention paid to the processes of learning and upgrading at firm level (Coe et al 2008, Morrison et al 2008). For example, though one of the advantages of using a GVC framework is that it includes not only the activities of MNC subsidiaries but also those of indigenous firms it has not analysed whether learning and upgrading differs in these different types of firms. This distinction is nevertheless important because while MNC subsidiaries and joint ventures are embedded in the global knowledge networks of their parent firms and are therefore likely to be less reliant on the national and regional institutions of the host country, indigenous-owned firms are likely to be much more rooted and dependent on local business and innovation systems. Without a greater understanding of how firms inserted in GVCs internalise and use novel external managerial, organisational and technological knowledge and practices it is difficult to understand the dynamics of these networks and to what extent the potential for upgrading will actually be realised. Therefore, as argued in Ramirez and Rainbird (2010), to understand capability development in international networks research on GVCs needs to make connections with theories of the firm which focus on learning, upgrading and the development of absorptive capacity at firm level. A significant contribution to our understanding of how firms learn, absorb external knowledge and develop innovative capabilities come from literatures that conceptualise the process of learning and knowledge creation as social and interactive processes dependent on the existence of both in-house routines for capability formation as well as the linkages firms develop with local and national institutions that support knowledge creation and diffusion (Lundvall 1992; Nelson 1993; Lall and Pietrobelli 2003, 2002; Viotti 2002; Lundvall et al 2009). These approaches recognise that though important learning takes place as part of the daily routine of firms- including its regular interactions with suppliers and buyers- the ability to perform more complex activities and undertake more knowledge-intensive functions usually requires the existence of systematic internal practices (e.g. the type of activities undertaken in technical or R&D departments) explicitly aimed at absorbing and where possible generating new knowledge (Lundvall 1992). It is recognised however that these processes of learning and search within firms are also shaped in a fundamental way by national and local institutions that influence the way interactions take place (for example: trust and loyalty, the long-termism versus short-termism vision of the finance system). Learning and upgrading is also influenced by the way firms interact with national organisations and institutions for knowledge creation and diffusion and the nature of these (for example: education, training and skills development systems, academic and state science and technology research institutes; technical consultancy services; intellectual property legislation). So, for example, Lundvall and Johnson (1994) argue that the specific combination of skills, education, knowledge and experience which characterises the personnel of the R&D department of a firm will influence firm-level innovation and learning process including the ways that problems are formulated, methods chosen and solutions sought. However, the type of skills and knowledge firms are able to access and the manner in which they are able to access them will be influenced by the national institutions system in which firms are embedded. Other approaches, such as the Varieties of Capitalism literature link the technological advantages of firms and nations to the existence of different national institutions that shape the manner in which coordination to access resources necessary for production and innovation (for example access to skilled labour or finance) take place in different capitalist economies (Hall and Soskice 2001). Amongst the significant insights of both these literatures is the historical and path-dependent nature of the evolution of national institutions for capability formation, the difficulties and dangers associated with attempts to mechanically transfer institutional set-ups which have been successful in particular national environments to others and the difficulties in identifying a 'best-practice' when it comes to institutional systems (Lundvall and Johnson 1994). This literature also points out that the emergence of national institutions that shape knowledge creation and diffusion are not technocratic questions but are often contested and subject to intense political conflict (for example national systems of education and training, the protection of intellectual property rights, or the corporate governance and finance systems) (see Streek 1989 for example for a discussion on skills). As a result, institutional framework that supports learning and innovation countries and regions provide (or fail to provide) will be influenced by the historical development of their national business and innovation systems. Though the literatures on national business, learning and innovation systems have made significant contributions to our understanding of knowledge creation and diffusion their focus has remained local and national and has not engaged with the opportunities and challenges for upgrading face by firms inserted in GVCs. Yet a key insight of GVC analysis is that firms that are more integrated into the global economy are subject to both intensive pressures to learn and upgrade their products and processes but also face greater opportunities to acquire new knowledge and skills. Moreover the needs of firms inserted in GVCs and the requirements they place on local and national business and innovation systems may differ from those of indigenous firms with weaker exposure to the quality standards and practices of international markets (Ramirez et al 2012). By making connections between literatures that focus on knowledge acquisition in GVCs and that of national system for learning and innovation the aim is to gain a better understanding of how learning and upgrading take place at the firm level within global networks. It has been noted by Morrison et al (2008) as well as Ponte and Ewert (2009) that within the GVC literature the concept of upgrading is rather unclear. Drawing from various contributions on the GVC literature Fernandez-Stark and Gereffi (2012) conceptualises the process of upgrading as including six distinct changes: : Entry into the value chain, when a new actor begins to participate in the value chain; product upgrading, which describes the shift into the production of a higher value product; process upgrading describes improvements in efficiency in the production systems, such as the incorporation of more sophisticated technology; functional upgrading describes the movement to higher value stages in the chain that require additional skills; chain upgrading, which describes the entry into a new value chain by leveraging the knowledge and skills acquired in the current chain; and finally, end market upgrading, which describes the entry into new higher value end market segments, which may involve geographic or industry shifts, such as textile suppliers moving from apparel manufacturers to customers in the medical, defence or construction industries (Gereffi, 2005; Fernandez-Stark, et al., 2012; Humphrey & Schmitz, 2002). This conceptualisation of upgrading however may not take into account more modest improvements in products or processes that nevertheless represent significant learning efforts on the part of firms and which play an important role in consolidating their participation in GVCs. For example a study of Pakistani car component suppliers in Japanese-led GVCs showed that even the ability to improve existing products and make relatively modest improvements to existing production processes required significant investment and effort on the part of suppliers (Ramirez et al 2012). Therefore, in a similar manner to Morrison et al (2008) the paper uses the term upgrading to mean a widening and deepening of existing capabilities as well the more far-reaching improvements of capabilities. Method Based on a review of existing empirical studies as well as primary data the paper examines the role of national innovation and business systems on learning and upgrading in servicebased GVCs. Empirical studies of services GVCs allow the identification of networks in different locations, the particular way they are organised (for example the extent to which indigenous firms participate in GVCs in specific locations), and the demands they place for skills and knowledge in that particular locality. Some of these studies have also explored to what extent supplier/customer upgrading has taken place. These studies however seldom discuss whether MNC subsidiaries and indigenous firms have different requirements in order to upgrade their capabilities nor do they delve into how the different skills and knowledge required by firms inserted in GVCs were provided in different countries or regions and the institutional systems that led to their reproduction, development and expansion. To gain an greater understanding of the institutional set up necessary to support learning and upgrading of firms in GVCs the paper draws on both the GVC literature as well as studies of national institutional systems and the way they influenced the development of different industrial sectors. The combination of these perspectives and empirical studies is required to understand the role of national institutions for upgrading in GVCs. Given the size and complexity of the literature it is not possible in this paper to give a comprehensive review of all studies undertaken, however the analysis of significant contributions from the literature on GVCs as well as from the innovation and business systems literatures gives a clear indication of the institutions of interest and the role they play in learning and upgrading in GVCs. Most of the studies reviewed are qualitative and though this limits our ability to generalise from these particular experiences they make a significant contribution by helping to open the 'black box' of what happens inside firms in terms of their learning and upgrading practices and their linkages with local institutions for knowledge creation and diffusion . Results The most significant finding from this review of existing empirical literature is the dearth of studies analysing the relationship between national institutions for knowledge creation and diffusion and learning and upgrading in GVCs. Studies of national innovation systems with firms actively engaged in GVCs did however provide some indication of the relevant institutions and the role they played in learning and upgrading. Given the broad scope of the NSI and RIS literature the discussion focuses on the key factors identified in empirical studies of a selected group of countries with firms that have successfully engaged in businessservices GVCs. The discussion below focuses on five factors: Institutions related to human capital; The national science and technology research system; industrial structure; national demand; and intellectual property protection. (1) Institutions related to human capital: skills, employment relations, career and professional development Empirical studies of learning and upgrading in GVCs highlighted the importance of labour for capability development in GVCs. Questions related to the cost, the supply and retention of labour, the systems for skills, education and training, the institutions for career and professional development arose as significant factors influencing the ability of firms to learn and undertake more complex functions in GVCs. (1.1) The systems for skills, education and training Studies of MNC subsidiaries as well as indigenous firms which participate in business services GVCs clearly highlight the importance of access to skilled labour at relatively low costs as one, and in many cases the main, reason for increasing the outsourcing and offshoring of business service activities. These studies also link the upgrading to more complex functions in GVCs to the increasing sophistication of labour skills and experience (UNCTAD 2004; Dossani and Kenney 2007; Massini and Miozzo 2010; Gereffi and Fernandez-Stark 2010). Though much of the present literature on the outsourcing of business services refers to the importance of skills in IT and software engineering it is important to bear in mind that the offshoring of business service functions started before the advent of ICT and that a number of locations which are now have strengths in ICT-related business services developed their competencies as services providers prior to the ICT revolution. According to Metters and Verma (2008) in the case of the US, the offshoring of service work started in the 1970s when batches of data were transported by ship and air from the US for processing to the Caribbean, above all Barbados. The authors point out that by the mid-1990s a number of US firms operated offshore paper processing centres employing a significant number of workers. US firms had also established offshore paper processing activities in Ireland. Though much of this work was unskilled, some activities- such as the processing of health insurance claims in Ireland, involved professional workers (e.g. nurses). It is interesting to note that today both Ireland and the Caribbean (Mulder et al 2007) are locations with a significant number of IT-enabled business service firms inserted in GVCs indicating the importance of the broad range of skills required for a number of service- related activities and cautioning against an exclusive focus on the technical knowledge associated with modern ITenabled business services. Radical changes in technology associated with the diffusion of ICT are of course central to the emergence and rapid expansion of business services GVCs offering software and computer programming services as well as numerous IT-enabled business services associated with business process outsourcing (BPO). The convergence between ICT and business functions meant that many of the firms which started out as IT service providers over time diversified their service offering into IT-enabled business services increasingly widening their demand for skills. As a result, whilst initial accounts of the rise of ICT services GVCs tended to focus on the demand for highly-educated IT workers more recent accounts have identified a broader set of professional and language skills necessary for upgrading in BPO activities (See Gereffi and Fernandez-Stark 2010). India has a strong business services industry made up of both MNC subsidiaries as well as strong indigenously-owned firms. Though the beginnings of the Indian software services industry is associated with relatively low-value work the upgrading of activities to more complex functions is widely acknowledge (Arora et al 2001; D'Costa 2003; Athreye 2005; Dossani and Kenney 2007; Joseph 2009). Research on the Indian software services industry has given the country's national system of education and its emphasis on the teaching of science and engineering a central explanatory role for the development of this industry. Though not focusing particularly on the development of software engineers in the early stages of the industry, the role of India's engineering colleges has been highlighted in studies which have also pointed to the agglomeration of software MNCs around the pools of skilled labour clustered around these education institutions, the most salient being Bangalore (Arora et al 2001). Similarly, Joseph (2009) relates a number of government initiatives in education during the 1970s and 1980s that resulted in the introduction of numerous graduate and postgraduate programmes in computer sciences. Joseph recounts how proficiency in computer programming was made mandatory for the undergraduates of India's IT colleges and for science postgraduates of all major universities in the country and he refers to a number of both public and private training initiatives to develop software skills amongst the workforce. These include initiatives by India's Department of Education supporting training in software development in firms as well as permission for the establishment of private training centres. The significance of these initiatives for the IT software and services industry in India is reflected in Arora's et al (2001) study where a number of firms indicated that a graduate engineering education was needed because of the problem-solving skills, logical thinking and learning tools it imparts which help employees to quickly adapt to changes in technology and tasks. It was argued that since Indian firms aimed to provide a wide range services these skills and capabilities were necessary. However, though the large number of university trained engineers has been seen as one of India's strength in software and business services various studies point to a number of weaknesses in these initiatives. The uneven character of the IT training imparted by private institutions has been noted by Joseph (2009). On the other hand, Arora and colleagues note the inefficient use of human capital in India with highly qualified engineers working in tasks that underutilize their knowledge and skills. This is explained by the fact that Indian software firms (above all those servicing the US rather than the local Indian market) prefer to recruit university trained engineers rather than diploma holders from private training institutes even though the majority of the tasks for which they are recruited will tend to be relatively nontechnical. The work of Arora and colleagues suggests that a more efficient use of skilled labour would require firms to organise short training courses to college graduates but firms don't do so because they do not want to give the impression (above all their US clients) that they do not have necessary qualified workforce. This suggests an inefficient use of knowledge and skills with the underutilization of degrees at higher levels in the jobs hierarchy and of intermediate qualifications which are not employed. In the cases of Ireland and E. European countries the empirical studies reviewed indicate that the business services industry is mainly dominated by MNC subsidiaries serving other MNCs outside the host country. In these countries indigenously-owned business service firms appear to mainly serve niche markets or local SMEs and be weakly connected, if at all, to GVCs. Studies indicated that in Hungary, Slovakia and the Czech Republic as well as Ireland the presence of business services MNC subsidiaries made specific demands on national educational provision which were positively responded to be national governments. In the case of Hungary, for example, a number of initiatives such as the introduction of secondarylevel training for future call centre employees and the organisation of university-level training course in ‗service sciences‘ were introduced with the help of the Hungarian Outsourcing Association ( Hardy et al 2011). In the main services MNCs in E. European countries appear to want access to the specific language skills necessary to service the region so that knowledge of at least one foreign language was a prerequisite to gain employment. Hardy's et al (2011) study found that between 80 and 90 percent of employees in these firms had a university degree and the majority of them spoke more than one foreign language. The authors found that university graduates were favoured not because the work required university-level skills but because graduates were more likely to have language skills. As in the case of India this suggests an inefficient use of knowledge and skills with the unproductive use of formal qualifications at higher levels in the jobs hierarchy and an underutilized use of intermediate skills. In the case of Ireland, access to a comparatively cheap, well educated, English-speaking workforce and the responsiveness of the Irish education system and government to the skills requirements of foreign investors have been amongst the main arguments used by Irish investment promoting agencies to attract FDI in internationally traded services (Mac Sharry and White, 2000). Since the late 1970s the development of a technically competent workforce and the establish of close links between the education system and the needs of industry (above all those of MNCs) have been high on the Irish government's agenda leading to a number of initiatives such as the establishment of Regional Technical Colleges (RTCs) created to supplement the universities as well as the establishment of a forum for dialogue between Ireland's Industrial development agency and the education system which has clearly placing industrial policy and the needs of MNCs at the centre of education and training policy (Barry 2005). During the l980s initiatives designed to train school leavers in the basics of computerization, office procedures and business operations were rolled out at the same time that a programme of grants to enterprises for employee training was introduced. These grants were often included in the incentive package offered MNCs locating in Ireland (Trauth 2001). It is important to note the importance of Ireland‘s accession to the European Union (or EEC) to the growth of its vocational and technical education system as to a large extent this expansion was financed with the assistance of European funds. So, for example, in 1986 almost 90% of new entrants to full-time courses at the RTCs (i.e. about 20% of those entering third-level education) were in receipt of ESF grants (Barry 2005). Case study evidence supports the notion that over time firms located in Ireland have tended to increase the numbers of engineers and technicians they employ. At the same time these studies have found that newer waves of FDI have tended to employ a higher proportion of skilled employees (Wickham and Boucher 2004). Concerns have been expressed, however, that though Ireland's institutional system of education and skills development has adjusted well to the changing needs of the foreign-owned sectors it has neglected the requirements of indigenous industry (Wickham and Boucher 2004). Moreover, as in the case of India and E. European countries the work of Ó‘Riain (1997) also points to significant levels of underused skills amongst engineers in the software industry. 1.1.2 Importance of a national research system for high-skilled workforce In order to undertake the more knowledge intensive activities of the value chain firms need access to very highly skilled labour with doctoral degrees as well as research expertise and problem solving expertise. Studies of R&D outsourcing in the pharmaceutical industry, for example, indicate that at that level of the value chain the type of employees that are required need to be 'problem solvers, fixers, idea generators' (Interview Astra Zeneca 2012). Though international movement of labour through expatriate workers, immigration or sending nationals to foreign universities can alleviate shortages of knowledge workers, the lack of a national research system can undermine the ability of both indigenous firms as well as MNC subsidiaries to upgrade to the more complex and innovative activities in GVCs (Athreye et al 2009). In the case of the Indian software and business services industry, for example, the study of Arora et al (2001) points to the country's weak postgraduate research and training infrastructure as a potentially serious constraint on the ability of Indian-based firms to access research and problem solving expertise. In the case of Ireland, the emergence of a number of international locations for internationally traded service during the mid to late 1990s led the Irish government to increasingly target the higher-value activities of the GVC for FDI. The need to create a pool of very highly skilled labour with research expertise in order to attract and embed these high value activities was one of the arguments presented by Irish policy makers to support a major shift in resource allocation towards the establishment of a national research system even in the context of the acute financial crisis gripping Ireland since 2008 (Ramirez et al 2012). (1.1.3) Employment retention Most country case studies with successful business service GVCs reveal periods of high attrition and turnover rates in labour market with firms finding it difficult to retain high skilled employees. Whilst this has led to higher costs of labour in all the countries studied some countries have also attempted to respond to tight labour markets with a number of institutional initiatives. In the case of India, for example, where indigenous-owned firms (compared with MNCs) have found it particularly challenging to retain employees (Parthasarathy and Aoyama,2006) one response to the high labour turnover has been to provide career paths to employees, promoting software programmers to managers based on seniority rather than on proven managerial ability (Arora et al 2001). This practice however has been questioned by US client firms who have argued that this has weakened project management in Indian firms. A key point here is that solutions to problems are often contested within countries and GVCs hence the variety in business and innovation systems and why notions of 'best practice' are not useful when discussing national institutions. Interestingly, Parthasarathy and Aoyama (2006) suggests that Indian-owned firms have developed different trajectories for upgrading than MNCs operating in India and that this has influenced employee retention rates. They point out that changes in the nature of work in Indian R&D service firms has created new advantage for working in these firms as they enable IT professionals to continuously develop their skills in contrast to employees from MNCs who feel that they are always doing the same thing. Further work needs to be carried out to establish if this is also linked to more dynamic career progression paths in Indianowned firms. 2 National Science, Technology and Innovation Research System As firms undertake more complex functions in GVCs the existence of dynamic national science and technology research system becomes increasingly important. There are a number of reasons for this including: the need to develop a very skilled workforce with research expertise, the ability to access consultancy services and advice from public sector research establishments and/or university research teams, the potential for more in-depth knowledge transfer in academic-industry links, the potential for the creation of research-led academic spin-out firms with potential for insertion in the higher value functions of GVCs. In the case of the Indian, government R&D efforts in software development distributed throughout a variety of public research institutions (including military research) and universities was central to the build-up of national capabilities and was vital for the development of a critical mass of skilled workers with software expertise (Parthasarathy and Aoyam 2006, Joseph 2009). As well as working for MNCs and large Indian-owned firms, many of these highly skilled workers went on to become the entrepreneurs that underpinned the development of a local cluster of 'home grown' firms in areas such as Bangalore. Joseph (2009) argues that India's national science and technology system has also played a role in attracting US MNC's R&D investment into the country thereby allowing US MNC subsidiaries to undertaken higher-value activities in GVCs. Nevertheless, studies also highlight the existence of weak industry-academic links resulting in a continuing mismatch between the skills-set of employees and those of firms so that large companies have to make substantial investments in in-house training (Joseph 2009). The training infrastructure of some of these firms (e.g. TCS, Wipro and Infosys) is on a large scale, sometimes larger than those of leading universities. The commitment of Indian indigenous firms to their in-house training programmes is clear evidence to the strength of India's indigenous industry with aspiration to develop their own GVCs and is a contrast to the weakness of the Irish indigenous industry. For countries where FDI is important the presence a dynamic research base may be important for both attracting and embedding the higher-value activities of MNCs. Hardy et al (2011) note evidence of more substantial relationships in terms of research and development cooperation between the companies and universities, with examples of companies financing selected university activities developing in Hungary, Slovakia and the Czech Republic. In the case of Ireland, in the context of the increasing intensification of international competition for FDI, the development of an internationally competitive academic research system capable of generating knowledge relevant for industrial innovation, dynamic university-industry links, and academic spin-out firms has become a central plank of the country's policy efforts both to attract and embed new waves of higher-value FDI activities as well as creating a new generation of indigenous industry capable of inserting itself in the higher functions of global GVCs. Research on industry-academic links in Ireland (Ramirez et al 2012) show that the STI policies introduced since 2000 have resulted in an increase in academic-industry linkages by both MNCs and indigenous firms but that it is the foreign-owned firms that have mostly benefitted from the new system. The research shows that firms with higher R&D, skills and export intensity have created more linkages with universities. In Ireland these firms tend to be subsidiaries of MNCs, especially in the ICT and pharmaceutical sectors, which are also deeply embedded in the global science and technology networks of their parent firms and have therefore developed substantial absorptive capacity and internal capabilities outside of the Irish STI and business system. In the case of Irish-owned software firms the research show weak linkages with the new research system namely because of the long-term nature of this research and the requirement that industrial partners contribute some of the funding. The research shows that the STI system emerging in Ireland deepens the dual character of the country's industrial structure which has been identified as a significant weakness for sustainable growth. It is important to note that the policies introduced in Ireland were strongly influenced by notions of 'best-practice' associated with high-technology or well performing regions in the US and EU (Liagouras 2010; Tödtling and Trippl 2005) but which were not necessarily appropriate to the character of Ireland's industrial structure or stage of development. 3 Industrial Structure The national industrial structures of countries is also important in explaining the emergence of new, often very specialised, firms which can integrate themselves in high-value nodes of GVCs. In new technological and industrial fields, for example, what is the source of new firm formation is an important question. New firms can arise from a number of sources. FDI is clearly one source of new firm formation and this has been very important for countries following FDI-led industrialisation strategy such as Ireland or Singapore. The sources for new indigenous firms can be many including: the national science, research and academic system, spin-outs from existing national firms as well as spin-outs from MNCs. In a number of countries such as Ireland and India, specialised spin-out firms from MNCs have played an important role in the emergence of indigenously-owned industry. So, for example, the exit of IBM from India led to the start up of small entrepreneurial firms by ex-IBM employees (Athreye 2005) whilst many of the professionals that were later to become the founders and managers of home grown higher-value service firms developed their technical as well as managerial expertise at the offshore development centres of multinational firms (Parthasarathy and Aoyama,2006; Joseph 2009). The above is also true for the creation of Ireland's indigenous firms many of which have been spin-outs from US MNCs and whose technical and managerial employees gained critical knowledge whilst being in their employment (O‘Malley and O‘Gorman. 2001). In the case of the Indian pharmaceutical industry the acquisition of MNC subsidiaries in the 1990s and early 2000s- including in some cases the Indian-based research centre of these firms- by Indian-owned firms played an important role in the development of capabilities and skills by indigenous firms as well as the basis for collaborations and the entrance of Indian firm into the GVCs of EU pharmaceutical lead firms (Athreye et al 2009). Existing national firms have also been an important base for the creation of new firms that have entered GVCs in new dynamic sectors. In the case of the business services industry in India many of the new indigenous entrants consisted of existing firms (many of them indigenous computer hardware firms or firms with large in-house data processing activities) diversifying into software (e.g Wypro). Spin-outs from large national firms have also been the basis for the creation of new entrants that have successfully inserted themselves in GVCs (see Arora et al 2001 for examples). A key challenge however is the existence of a financial system able and willing to support high-risk start-ups. In the case of both India and Ireland (through Enterprise Ireland) state financial assistance has been an essential source of finance for these firms (D'Costa 2003). However, much of the financial dynamism for Indian start-up firms seems to have originated in the US where Silicon Valley-based Indian technoentrepreneurs have become angel investors for Indian companies (D'Costa 2003). 3.2 National networks of suppliers The existence of a dynamic base of supplier firms has been identified as an important factor embedding investment, including FDI, and determining the strength of knowledge flows between firms inserted within GVCs in national and regional localities (White 2004). The existence of a numerous, dynamic and strongly linked base of local suppliers inserted in GVCs is therefore linked to the development of clusters and the benefits for learning and upgrading associated with this. 4 Importance of national demand The strength and sophistication of national markets also arises as important for firms' ability to insert themselves and upgrade in GVCs, above all in the early stages of development of firms. The main explanation for this is that it is in the context of national markets that most firms begin to learn and develop the skills that allows them to compete later on in international markets. Private sector client firms- both indigenous or MNC subsidiaries- as well as public procurement have played a significant role in stimulating learning and upgrading of business service firms by making stringent demands on quality but also giving services providers the opportunity to deliver more complex services (Botelho et al 2005). In India, for example, Athreye (2005) highlights the importance of the exit of IBM from the Indian market as it created domestic demand for Indian programmers who could support domestically produced computers. This, along with demand for programming skills for public sector programmes (e.g. attempt to build space capabilities) was important for the formation of the knowledge and skills-base that underpinned the growth of the Indian software and business services industry. The national market remained important even after Indian firms had entered international markets as software development for the domestic market provided more challenging projects and therefore led to the development of a broader range of skills that just producing for export markets. While the bulk of exports from Indian service firms consisted of low-design, coding and testing, projects for domestic customers were larger and more challenging as for example the screen-based trading system for the Bombay Stock Exchange and the Reservation System for Railways (Arora's et al, 2001). In the case Brazil, for example, Botelho et al (2005) highlights the role of the Brazilian banking and telecommunications industries who combined strong in-house capabilities with outsourcing to MNCs and indigenous software service firms. The products and services developed in these contracts could serve as the basis for subsequent products and services. However, once an industry is established it is less dependent on its home market and exposure to international markets may be necessary for its further development. Parthasarathy and Aoyama (2006) for example refer to developments associated with the emergence of the R&D services sector in Bangalore which grew as part of global networks associated with Asian, specially Taiwanese, semiconductor GVCs. The authors point to the fact that these R&D service firms have grown without the support of local industry and argue that linkages to Asian networks have allowed Indian software firms to 'path-skip' to R&D services. It is important to note however that the origins of these Indian firms can be traced back to the pool of designers employed by two Bangalore-based public sector firms (Parthasarathy and Aoyama, 2006). The limitations of the Irish national market has been raise as a factor explaining the difficulties for the emergence of indigenous software and business services Irish firms. Interviews with the Irish National Software Association indicated the role of national firms in areas such as banking in the initial development of the indigenous Irish software industry. The increasing dominance of MNCs and their network of overseas suppliers with the rise of global procurement had weakened the national market for indigenous firms. On the other EU hand anti-competition laws restricted the ability of Irish public sector organisations (e.g. libraries, local municipalities) to support the development of national firms. A more recent example of successful outsourcing relates to Indian pharmaceutical companies who are increasingly participating in the GVCs of European and US pharmaceutical leadfirms as R&D service providers. In the case of this industry, Schüren (2012) refers to the importance of domestic demand linked to public sector initiatives (as well as the regime of intellectual property protection that allowed product imitation) for the initial development of the capabilities of Indian-owned pharmaceutical firms. The drop in publicly funded domestic demand during the 1990s is one of the factors that has spurred Indian pharmaceutical firms to increasingly insert themselves in global value chains either as producers of generic products or as providers of manufacturing and, more recently, R&D services to European and US led pharmaceutical GVCs. The success of Indian firms in international markets has not however been without controversy as Indian firms have been criticised for focusing their research capabilities on lifestyle and chronic conditions as well as more advanced science-based technologies such as biogenetics and stem-cells considered more relevant for foreign markets rather than domestic disease patterns (Schüren, 2012). This pattern of development is contrasted to the Brazilin pharmaceutical industry which, in contrast to the Indian, is focused on the needs of the domestic population but where private sector firms are weak and little engagement with GVCs exist (Ibid). 4. Role of industry associations Case studies indicate that in a number of countries and regions, industry associations have played an important role supporting firms upgrade in GVCs by helping to provide both in formal and informal ways (e.g. through peer group networks) a variety of technological knowledge as well as market research. The role of NASSCOM in the Indian service sector in providing valuable market research information (Parthasarathy and Aoyama (2006) as well as its role in projecting India's international image internationally (Josepth 2009) has been noted in various studies. In the Czech Republic, Slovakia and Hungary, companies participated in the development and institutions of local business through their membership of chambers of commerce and business clubs and nationally through IT and outsourcing alliances. For the companies, these associations provided an informal forum for exchanging ideas and transferring tacit and codified knowledge. Moreover, through these associations, managers of FDIs exerted institution-bending behaviour through attempts to exert pressure for changing what they regarded as certain detrimental elements of the local environment. (Hardy et al 2011) 5 Intellectual Property Protection Historically, national intellectual property regimes played a significant role in shaping the ability of national firms to insert themselves in GVCs and the manner in which they did so. More recently the WTO and the Agreement on Trade-Related Aspects of Intellectual Property Rights (TRIPs) have undermined these national differences nevertheless their legacy still exists and TRIPS remains controversial. One of the most significant examples of the importance of national intellectual property regimes was the patent legislation in India before entry to the WTO and the manner in which it shaped the development of the Indian pharmaceutical industry. Historically, the intellectual property legislation in India protected process but not product innovation. This allowed Indian pharmaceutical firms to copy and reverse engineer the pharmaceutical and chemical compounds of the leading chemical and pharmaceutical MNCs allowing Indian-owned firms to develop quite extensive expertise in chemistry. India was forced to abandon this 'developmental patent regime' (Schuber 2012) as part of its entry in to World Trade Organization (WTO) and its decision to abide by the Agreement on Trade-Related Aspects of Intellectual Property Rights (TRIPs) which requires the provision of patent protection for both pharmaceutical products as well as processes. After the TRIPs agreement leading Indian generic firms started to invest heavily in R&D and this has allowed them to upgrade their capabilities and undertake more complex and highervalue activities in GVCs as R&D service providers. The evidence suggests that Indian firms have successfully inserted themselves in GVCs and are upgrading their capabilities to perform higher-value activities (Athreye et al 2009). Interviews with leading pharmaceutical lead firms and biotechnology companies in the UK suggest that they are increasingly incorporating the outsourcing of chemistry-based activities to Indian pharmaceutical suppliers (Interviews Ramirez 2012). Nevertheless, Indian firms are only able to participate in GVCs today because by the time the changes in patent laws were introduced they had already developed strong capabilities in chemistry. Interestingly, Joseph (2009) refers to the role of India's software industry association (NASSCOM) in supporting anti-piracy initiatives in software showing the complexity of the role of intellectual property institutions even within the same country. This reflects the different needs of industries at different stages of development and GVC participation. Though today there is much less scope for reverse engineering and imitation-based learning and innovation strategies, intellectual property protection remains an issue of contention within and between countries. Conclusion The empirical studies analysed do make an important distinction between GVC activity in India and that of Ireland and Eastern Europe. Whilst India has both MNC and indigenousowned business services GVCs, the business services GVC activities in Ireland and the Eastern European countries studied are dominated by MNCs. The studies clearly suggest that national institutional differences were important influences in determining which firms were able to participate in business services GVCs and the manner in which the resources required for learning and upgrading in GVCs were created and developed. The importance of human capital is highlighted in all studies on the development of business services GVCs therefore national systems of education and training are central to our understanding of both the emergence as well as upgrading in these GVCs. However, different strategies of industrialisation have led to important differences between the education and skills development system of India which was mainly geared to the development of an indigenousowned GVCs and that of Ireland and E. European countries who have given a greater role to FDI. Empirical studies reviewed indicate that central to the success of India in business services industry has been its national systems of education and training with a strong emphasis on the teaching of science and engineering. Government initiatives in education and training the area of computer sciences started early and included government sponsored initiatives in both undergraduate and postgraduate education in universities and colleges, the establishment of private software training centres, as well as training in software development in firms. Given the origins of IT-enabled business services industry in software and IT services, India's early emphasis on science and engineering education and training placed it in a strong position to develop this industry. The existence of cadre of scientists and engineers has been the key element in Indian's ability both to attract FDI in IT-related business services as well as developing and indigenous-owned industry. A key distinguishing feature in India however, appears to be the significant in-house training programmes of some of India's indigenous firms. In contrast to India, Ireland does not have a history of large investment in science and engineering education, however, the importance of FDI in Ireland's industrialisation strategy has made it's education and training systems very responsive to the skills needs of foreign investors. At various stages in its history since the 1960s the Irish government has targeted foreign investment in higher-value industries and activities into the country and as part of this strategy it has introduced initiatives in vocational and technical education and training to increase both the technical and business competence of its workforce. The importance of Ireland's membership of the EU has been a significant factor in this respect as much of the funding for the expansion of the countries education and training system has come from European rather than internal funds. Similarly, the more recent evidence from E. European countries shows the importance of government responsiveness to the skills needs of foreign investors. A number of challenges and controversies are associated with the education and training systems in both sets of countries. Both in India and E. Europe, for example, there are important questions about the efficiency with which highly educated labour is used suggesting the underutilization of skilled workers who are performing tasks for which they do not need their skills well as the inefficient use of intermediate qualifications which are not employed. In the case of Ireland, on the other hand, a policy systems which is highly responsive to the needs of MNC has been criticised for neglecting the skills needs of indigenous firms. Despite the identification of underutilised knowledge and skills, empirical studies in India as well as Ireland indicate that the existence of a weak postgraduate research infrastructure is seen as a constraint by both countries to their ability to develop and attract the highest-value activities of the GVC such as innovation. These activities require more indepth problem-solving and ideas-generating capabilities which tend to be associated with research. The identification of these gaps suggests that the ability to match efficiently the needs of the various activities of the GVC with the knowledge and skills developed in national education and training systems is not an easy one. A key point however is that different countries, all of them successful as locations for business services GVC activity, have developed different education and training systems and that these have resulted in different ways of GVC involvement. The existence of a national science, technology and innovation research system appears as an important factor for the development of an indigenous industrial base as well as for the higher-value activities of business services GVCs. In the Indian case, government R&D efforts in software development were not only important for the creating the group of very skilled workers that played an important role in attracting FDI in higher-value activities but was also very significant for the emergence of indigenous entrepreneurs that underpinned the rise of India's local clusters of indigenous firms. Ireland, on the other hand, did not have a significant national science, technology and innovation research system until 2000, and this is understood to be one factor, amongst others, explaining the country's very weak indigenous industrial structure. The development of a internationally competitive national system of science and technology was a major policy initiative in Ireland and was seen as a significant element of the country's strategy to attract the higher-value activities of US led GVCs. The system being created however has been criticised for being of little relevance to the existing weak indigenous industrial base and up to now there is little evidence of its importance as a source for indigenous entrepreneurial start-ups. Moreover, while there is evidence that MNCs are locating higher-value activities in Ireland the importance of Ireland's efforst to create a national science and technology system in the upgrading of these investments seems unclear. The experience of Ireland with its complex dual industrial structure illustrates the complex role of national science and technology institutions in industrial and GVC development and why notions of 'best-practice' can result in institutional systems that are marginal to efforts to upgrade in GVCs. The role of countries' industrial structure as well as national markets also appear to play a significant role in the type of firms able to engaged in GVCs as well as their activities. Empirical studies from India as well as Ireland indicate the importance of MNCs as a source of indigenous star-up firms and in the case of India spin-out firms from large national firms have been significant. There are few studies however that discuss the institutional support given to these firms in areas such as finance or market intelligence, though industry associations do appear to play an important role in the latter. More research on the longevity of these start-ups and the type of support they require is key because the challenges faced by small entrepreneurial firms are significant and few countries have managed to engender significant numbers of these firms. One factor that does appear to be of significant importance for indigenous firms is the nature of the domestic market. Empirical studies of the Indian software industry show that even after indigenous firms had successfully internationalised, their domestic market still played a key role in their upgrading efforts as a source for more challenging projects that required a broader range of skills than those demanded by international markets. From a policy point of view this has important implications for the role public procurement policies- can play in the development of the capabilities of firms which can support upgrading in GVCs. The experience of India is in sharp contrast with that of Ireland where MNCs have tended to buy services from other MNC ad public procurement has not been seen as a policy tool to support the upgrading capabilities of indigenous firms. Research has show that insertion in GVCs as well a learning and upgrading once part of these global networks is a challenging task. A complex combination of systematic in-house investment as well as knowledge flows within GVCs is necessary for learning and upgrading. Though there is a dearth of research on how national institutions influence learning and upgrading in GVCs, the few studies that exist show that national institutions are essential for human capital development, firm-formation as well as the development of in- house research capabilities. The few studies that do exist indicate that different institutional systems can result in different patterns of learning, upgrading and insertion in GVCs therefore comparing and contrasting the experiences of firms- both the successes as well as failures- based in different national innovation systems is needed to gain a full understanding of the manner in which GVC participation and upgrading is influenced by different institutional systems. 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