Technology, Financing and Policy Shifts in Mexico: Challenges for Small Firms in a Newly Opened Economy

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Technology, Financing and Policy Shifts in Mexico: Challenges for Small Firms in a Newly Opened Economy University of London The London School of Economics and Political Science Department of Government Department of International Relations TECHNOLOGY, FINANCING AND POLICY SHIFTS IN MEXICO: CHALLENGES FOR SMALL FIRMS IN A NEWLY OPENED ECONOMY Joaquin-Joaquin Lozano-Aguirre Thesis Submitted for the Degree of Doctor of Philosophy Ph.D. 2001 1 UMI Number: U156130 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U156130 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 ABSTRACT The thesis argues that as technology and the economy are closely related, one factor undermining Mexico's economic performance may be the lack of a coordinated technology and innovation policy. It examines the relationships between three main participants in the national system of innovation: government, firms and financial institutions. Indigenous technology development in Mexico has become a more relevant debate since the country evolved from a protected to an open economy. Therefore, the period of study starts with the background of the 1970s, while the core of the thesis covers the mid-1980s onwards. It is argued that the economic crises of this period justify the need for, and hence the assessment of, government participation. Among the different government policy tools, this work focuses on the financing of private firms' technology projects. Small and medium-size enterprises (SMEs) are the subgroup of firms analysed through both quantitative and qualitative methods. Empirical evidence was gathered mainly from primary sources, including documents, in-depth interviews and a national survey of SMEs that have sought support from government agencies for undertaking technology projects. Even if Mexico has the main elements that, by international standards, any national system of innovation should have, this research shows that the short-termism of the government policies to promote the development of technology clashes with the long-term nature of technology projects. The lack of effective coordination between participants within the system undermines the creation of national technology capabilities. Designers and users of technology promotion programmes are isolated from each other, and bridging institutions, like business chambers, are not bringing them closer overcoming divide. Small firms do not have internal resources for research and development (R&D) activities, and banks have been reluctant to fund technology projects. Therefore, this thesis makes the case for government intervention, while suggesting more suitable actions for change. 2 'Emulate rather than imitate' Balthasar Gracian, 1637 3 To my father, Joaquin Xavier To my mother, Marfa Concepcion To my brother, Joaquin Ulises 4 To Francesca, my wife, my love, my endurance. 5 CONTENTS Abstract 2 List of figures and tables 9 Acronyms and abbreviations 11 Academic and personal acknowledgments 15 Chapter 1: Introduction 22 1.1 The argument 22 1.2 The research approach and structure of the thesis 29 Chapter 2: A review of the literature concerning technology, its link to the economy and government intervention 37 Introduction 37 2.1 Concepts and definitions 38 2.2 Views on technology, innovation and the economic performance of nations 47 2.3 The political economy of innovation: The interaction of states and markets 56 2.4 Technology and economic performance in 'catching up' countries: The context for the case of Mexico 67 Summary 72 Chapter 3: Evolution and institutional framework of Mexico's national system of innovation 74 Introduction 74 3.1 National systems of innovation: Conceptual framework 75 3.2 Historical background of the Mexican System of Innovation 80 3.3 The Mexican System of Innovation since the opening of the economy 90 3.4 The technology policy framework for a national system of innovation under an open economy 98 6 3.5 Some indicators of the performance of the Mexican System of Innovation 108 Conclusions 112 Chapter 4: Creating technology policy in Mexico 115 Introduction 115 4.1 The state, institutions, politicians, bureaucracy and policy networks: The context of Mexico's political system 117 4.2 Outline of the origins of technology policy in Mexico (1970-mid 1980s) 124 4.3 Technology policy in Mexico since the mid-1980s 128 4.4 Technology policy and networks in Mexico 135 4.5 Obstacles and limitations of technology policy in Mexico 144 Conclusions 152 Chapter 5: Small firms, business associations and indigenous technology innovation in Mexico 155 Introduction 155 5.1 The importance of indigenous technology for less developed countries and for small and medium-sized firms 157 5.2 Mexico's private sector 172 5.3 Business associations 181 5.4 Business-government relations and the effects on SMEs and technology 189 Conclusions 199 Chapter 6: The role of banks and firms in the financing of innovation in Mexico 202 Introduction 202 6.1 Theory and concepts inherent to a system for financing innovation 203 6.2 The Mexican banking system 214 7 6.3 Banks and the financing of technology and innovation 219 6.4 Firms: The demand for financing technology and innovation 227 Conclusions 237 Chapter 7: Mexico's government programmes for direct project financing: A technology policy case study 241 Introduction 241 7.1 The role of government 243 7.2 Banco de Mexico and Nafin 249 7.3 The evolution of Conacyt's financial programmes 256 7.4 Conacyt's FIDETEC: The credit programme for SMEs' technology projects 262 7.5 The other side of the programmes: The 'clients' and their experiences 271 Conclusions 282 Chapter 8: Conclusions 285 List of Appendixes 297 Appendix 1: Methodology and research tools 298 Appendix 2: Three technology successes of Mexican small firms and their experience with the government 304 Appendix 3: Reference numbers of interviews and details of interviewees 311 Appendix 4: Summary of topics from the guides for interviews 314 Appendix 5: Names of the firms whose owner or Director-General responded to the surveys questionnaire 317 Appendix 6: Survey questionnaire (Spanish) 320 Appendix 7: Survey questionnaire (English translation) 328 References 336 8 LIST OF FIGURES AND TABLES Figures Figure l.A. Interrelations among the processes affecting the performance of Mexico's System of Innovation 30 Figure 3.A. Respondents' answers to the question: What type of R&D institution did you use to develop your project? 103 Figure 3.B. Respondents' answers to the question: How do you rate the service of the R&D centre that you used for your project? 104 Figure 3.C. Respondents' answers to the question: From which agencies did you receive protection advice for your project? 108 Figure 4.A. Respondents' answers to the question: How responsible is the federal government in the promotion and support of technology development in Mexico? 138 Figure 5.A. Respondents' answers to the question: What categories of firms are able to develop technology in Mexico? 165 Figure 5.B. Respondents' answers to the question: How responsible are businessmen in the promotion and support of technology development in Mexico? 180 Figure 5.C. Respondents' answers to the question: How well do business chambers defend their members' interests? 189 Figure 6.A. Respondents' answers to the question: How do you perceive the financial institutions' attitude towards technology projects? 224 Figure 6.B. Respondents' answers to the question: How risky is your firm's technology project? 226 Figure 6.C. Presidential periods (post-1970) during which surveyed firms were established 232 Figure 6.D. Respondents' answers to the question: Is an internal financial strength essential for a firm's technological capacity? 235 9 Figure 7.A. Respondents' answers to the question: How long did it take you to get a response from the programme you were applying to? 275 Figure 7.B. Respondents' answers to the question: How were the resources given to your firm? 277 Figure 7.C. Respondents' answers to the question: How was the project financed? 278 Figure A .I. Cartoon illustrating a small firm-government relationship 308 Tables Table 2.1. Suppliers in the innovation process 45 Table 2.2. Users in the innovation process 46 Table 4.1. Technology policies and tools for innovation support 140 Table 4.2. Respondents' answers to the questions: Did the change of President affect your project? In which ways? 146 Table 5.1. Respondents' answers to the question: Which factors are essential for a firm to develop technology capabilities? 164 Table 5.2. Advantages/Disadvantages of small firms relative to large firms 171 Table 5.3. Respondents' answers to the question: How have the effects of trade liberalisation been for your firm? 197 Table 6.1. Components, functions and properties of a financial system 205 Table 7.1. Respondents' answers to the questions: Did your project start and end as planned? Why? 276 Table 7.2. Respondents' answers to the questions: How many changes of personnel took place during the development of your project? At which levels? 279 Table 7.3. Respondents' answers to the questions: Did
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