We agree with you. However, according to the MEXT’s definition, clusters need not involve local high-tech ventures. R&D collaboration between local public research institute and private firms outside of the cluster area is also an important part of a cluster for MEXT. Regarding the aim of local authorities, which includes the development of a cluster around a research organization or hospital, indeed cluster policy has not produced any outcomes yet.
in terms of the role of the state versus private initiative, governance traditions and philosophies, centralist vs. federal set-up.