亞太產(chǎn)業(yè)政策新時代：從可持續(xù)發(fā)展目標評估到政策解決方案（英文版）

UNIDO

UNITEDNATIONS

INDUSTRIALDEVELOPMENTORGANIZATION

progressbyinnovation

SUSTAINABLEDEVELOPMENT

G養(yǎng)ALS

POLICYBRIEFSERIES:INSIGHTSONINDUSTRIALDEVELOPMENT

ISSUENO.14-OCTOBER2024

TheneweraofindustrialpolicyinAsia-Pacific:fromSDGassessmenttopolicysolutions

AshrafMishrif

SultanQaboosUniversity

RajahRasiah

UniversityofMalaya

CarolinaDonnelly&NobuyaHaraguchi

UNIDO

Abstract

TheAsia-PacificregionhasdemonstratedconsiderableprogresstowardachievingtheSustainableDevelopmentGoals(SDGs),particularlyinareassuchasaccesstoenergyandindustrialproduction.However,challengesremainintheadoptionofcleanenergy,employment,andinnovation,whichhindertheregion’spathtowardfullyrealizingitsSDGtargets.ThedynamicanddiverselandscapeofAsia-Pacificrequirestailoredapproachestobridgethesegaps,withmodernindustrialpoliciesplayingakeyroleindrivingprogress.ThispolicybriefhighlightshowAsia-Pacificcountriescanleverageopportunitiesingreen

energy,digitalization,regionalintegration,anddemographicchangestoaccelerateprogress

towardachievingSDG7,8,and9.Itemphasizestheimportanceoftargetedinvestments

inrenewableenergytechnology,digitalinfrastructure,andskilldevelopmenttoovercomecurrentchallengesandunlocksustainableindustrialgrowth.Drawingonspecificcase

studiesfromtheregion,thebriefunderscorestheimportanceofstrategicindustrialpolicyinterventions,stakeholdercollaboration,andaflexible,adaptiveapproachtoglobalandregionalshifts.Byaddressingthesecriticalareas,Asia-Pacificcansolidifyitsroleasaglobal

industrialleaderwhilefosteringinclusiveandsustainableeconomicgrowthforthefuture1

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KeyMessages

1.

Asia-Pacificshows

significantprogress

towardsachievingSDGstargetsinaccessto

energyandindustry

butfaceschallengesin

theadoptionofclean

energy,employment,andinnovation.

2.

Theregion'sdiverse

landscaperequires

tailoredapproachesto

bridgethesegapsand

accelerateprogress

towardsachievingSDG7,8,and9.

3.

Targetedinvestmentsin

greentechnologies,digitalinfrastructure,andskill

developmentarekeyto

overcomingchallengesandtappingintoopportunitiesforsustainablegrowth.

HowfarisAsia-Pacificfromachievingindustry-relatedSDGs?

Recentresearchrevealsthatindustrialdevel-opmentisfundamentaltoachievingthe2030AgendaforSustainableDevelopment,particu-larlythroughitsimpactsongreenmanufactur-ing,jobcreation,andinnovation(SDGs7,8,and9).2UNIDO’srecentlypublishedIndustrialDevel-opmentReport2024assessesprogresstowardstheseSDGsin177developingcountriesandfourdevelopingregions.Theassessmentrevealsa

diverselandscapeofprogressintheAsia-Pacificregion,3withbothnotableachievementsandsomechallengesacrosskeyareas(seeFigure1).4

ForSDG7,theregionalperformancesignalssig-nificantadvancementsinenergyaccessandeffi-ciency.CountriesinAsia-Pacifichaveachievedanimpressive98percentoftheenergyaccesstar-get,surpassingthedevelopingworld’saverage.Energyefficiencyremainshigh,with73percentoftheSDGtargetmet,reflectingrobustenergyinfra-structure.However,theadoptionofcleanenergyintheregionlagsbehind,withlessthan50percentoftheSDGtargetachieved.Thishighlightsa

gapthatrequiresfocusedinvestmentinrenew-ableenergyresourcestoaccelerateprogress.

SDG8presentsamixedpicture.Economicgrowthintheregionhasbeenrobust,reflecting

theregionasarisingglobaleconomicpower.

Asia-Pacificachieved61percentoftheSDGtar-getandsurpassedthedevelopingworldaver-

ageby9points.However,employmentremainsaconcernintheregion,whichhasonlymet43per

centoftheSDGtargetandisbelowtheaveragescoreof46percentindevelopingcountries.Theregionshowsthatslowprogressinjobcreationincountrieswithrapidlygrowingpopulationscanbeveryproblematic.Strategicinterventionswillbecrucialtoclosethisgapandcreateopportuni-tiesfordecentwork.

ProgressmadeinSDG9reflectstheregion’sindustrialstrengthsandchallenges.Asia-Pacific’sindustrialperformanceachieved57percentoftheSDGtargetandpresentstheregionasapower-houseinglobalindustrialproduction.Progressininfrastructuredevelopmentoverthepastdecadehasbeennotable:beforeCOVID-19,countriesinAsia-Pacificwere,onaverage,reducingtheinfra-structuregapby2.45percentagepointsperyear.Infrastructureexpansionintheregionisfuelledbyinvestmentsinthesectorandaregionalfocusonusinginfrastructuredevelopmentasacatalystforinvestmentandindustrialgrowth.

However,despitetheregion’sindustrialprowess,innovationperformanceisfarfromthetarget.5Asia-Pacificisfallingbehindinfosteringinnovation

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Figure1.DistancetoSDGtargets:Asia-Pacificin2021

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43%41%

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Inovaon

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Averagescorefordevelopingcountries

52%

In2021,Asia-pacifccountrieswere,

BeforeCovD-19,Asia-pacifccountrieswere,

onaverage,reducingthecleanenergygapby

1.05percentagepointsperye.

onaverage,59%awayfromachievingtheSDGtargetforcleanenergy.

Note:ThevaluesrepresenttheaveragelevelofSDGtargetachievementforeachdimensionin2021,aggregatedattheregionallevelusingpopulationweights.Thegreyareasrepresenttheperformanceofalldevelopingcountries.TheshadedrectanglesontheoutersideofthefigurereflecttheaverageannualconvergencespeedtowardsthetargetinthedecadebeforetheCOVID-19pandemic.Thisiscalculatedbysubtractingtheindexvaluesin2019fromthosein2009,andthendividingtheresultbytenyears.

Source:UNIDOIndustrialDevelopmentReport2024,Figure6.1,page114.

andresearchanddevelopment(R&D)activities,whichmustbeaddressedtoenabletheindustrialsectortoflourishandensurelong-termsustain-ableindustrialgrowth.

Overall,progressinachievingSDGs7,8,and9inAsia-Pacifichasbeenmixed,reflectingtheregion’sdynamicanddiverselandscape.Highperformance

inareassuchasenergyaccessandindustrialproductioncontrastswithpersistentgapsintheadoptionofcleanenergy,jobcreation,andinno-

vation.Addressingthesechallengeswillrequire

targetedpoliciesandinvestments,especiallyinfosteringindustrialinnovationandexpandingcleanenergyproduction,toensuretheregion’scontinuedgrowthandsustainabledevelopment.

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Industrialpolicylandscape

DevelopingAsiahasconsistentlyembracedindustrialpolicyasacornerstoneforgrowthand

development,withhistoricalsuccessstoriesincountrieslikeJapanandtheRepublicofKorea.Additionally,theregion’slong-standingcom-mitmenttoindustrialpolicyhashelpedmanydevelopingAsiancountriesintheireconomicupgradingandindustrialization,andhasele-vatedthemtodevelopedcountrystatusinjustonegeneration.Thisevolvingapproachreflectsindustrialpolicy'spivotalroleinfosteringindus-triescriticalfornationaldevelopment.

Morerecently,anewwaveofindustrialpolicieshasemergedacrossAsia-Pacific,withChinalead-

ingtheway.Countriesareadoptingstrategic

industrialpoliciesthatfacilitatethetransitionfromatraditionalsector,suchastextilesandgarments,toindustriesthatleverageadvancedtechnologiestoenhanceproductionefficiencyandeconomicintegration.Forinstance,coun-trieslikeBangladesh,India,andPakistanhavesuccessfullyadjustedtheirindustrialpoliciestoachievesmoothtransitionsinkeysectors(suchastheready-madegarmentindustry)inanticipa-tionofastructuraleconomictransformationtiedtotheirdevelopmentstatus.6

Recentglobalshocksandgeopoliticaltensionshavealsocatalysedthenewwaveofindustrialpolicyintheregion.TheCOVID-19pandemicandrecentarmedconflictshaverevealedvulnerabili-tiesinglobalsupplychainsandthelimitationsoffree-marketfundamentalsinaddressingglobaleconomicchallenges.Asaresult,countriesintheAsia-Pacificregionhaveshiftedthefocusoftheirindustrialpoliciestowardsmitigatingtheadverseeffectsofglobaldisruptionswhilesteer-ingtowardslong-termsustainabledevelopment.7

Aprominentfeatureofmodernindustrialstrate-giesisthestrategicemphasisondigitaltransfor-

mationandcleanenergytransition.Countriesareusingawiderangeofpolicyinstrumentsforthis,

suchasfinancialincentives,publicinvestmentinR&D,foreigndirectinvestment(FDI)attrac-tion,publicprocurement,andtheestablishmentofSpecialEconomicZones(SEZs)andindustrialparks.Theseinstrumentsaretailoredtosup-porttheregion’spriorities,includingdigitaliza-tion,adoptionofcleanenergy,andindustrialupgrading.

FourmajorcountrygroupsareidentifiedinAsia-Pacificbasedontheirindustrialpolicylandscape.8Sub-regionalandcountry-specificprioritiesreflectdiverseeconomic,social,andgeopoliticalcontexts,highlightingtheneedfortailoringindustrialpolicytosuiteachsub-regionalstrengthandneed.Assessingtheuniqueindustrialstrategies,objectives,andchallengesrequiresunderstandingeachsub-region’spolicyenvironmenttoharnesstheirfullpotentialforsustainableindustrialdevelopment.

EastandSouth-easternAsiancountriesfocusmainlyonexport-orientedindustrialupgradingtodeepentheintegrationofadvancedtechnolo-

giesinmanufacturingprocesses,therebyincreas-

ingthesophisticationandvalueofdomesticallyproducedgoods.Forinstance,strategicincentivesandgrantshavehelpedChinaachieveindustrialprogressinseveraltechnologysectors,includingelectronics,electricvehicles(EVs),solarpanels,textilesandclothing,andsmartcities.Addition-ally,selectiveFDIandexport-ledgrowthstrategiesareimplementedbyIndonesia,Malaysia,Thai-land,thePhilippines,Cambodia,LaoP.D.R,andVietNamtoattractinvestmentsintargetedsec-tors(suchasinrenewableenergy,EVsanddigi-taltechnologies)thataddvalueandcreatejobs.9

InCentralandSouthAsia,countriesseektoleveragetheirlatecomerstatustospurindustri-alizationthroughindustrialupgrading(inSouthAsia)andmineralprocessing(inCentralAsia).

SouthAsiancountriesarepromotingtechnologydevelopmenttoaccelerateindustrialupgrading

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andcreatejobs.However,theystruggletocre-atecomprehensiveindustrialecosystemsthatintegratevariousstagesofproductionprocesses,whichhampersthesecountries’abilitytosus-tainlong-termindustrialdevelopment.10CentralAsiancountriesareprioritizingthedigitizationofminingandmineralprocessing,andcustomspro-cedurestoeasetradeandenabletheireffectiveparticipationinglobalvaluechains11

InWesternAsia,economicemphasisisdirectedondiversifyingawayfromoil-basedeconomiesandinsteadfocusingonrenewableenergyprojects,healthindustriesandhigh-techmanufacturingthat

fostersustainableeconomicdevelopment.WithSaudiArabiaandtheUnitedArabEmiratesleadingtheway,thesecountries’greenenergyprojectsaimtoopennewavenuesforindustrialdiversificationandcontributetoenvironmentalsustainability.Developingworld-classinfrastructure,suchasair-ports,seaports,andindustrialparks,isdesignedtocreateanenablingenvironmentfordomestic

Opportunitiesandactions

Megatrendssuchasclimatechangeandtheenergytransition,digitalization,thereconfigurationofglobalvaluechainsanddemographicchanges,arecreatingnewchallengesfordevelopingcountries,butalsooffersignificantopportunitiesforindus-trialdevelopment.Newindustrialpolicyformsareneededtoturnthesechallengesintoopportuni-ties.Thesepoliciesmustharnessthepotentialofemergingsectorswhileaddressingtheregion'sspecificchallengesinareassuchasinnovation,theadoptionofcleanenergy,andjobcreation.

Energytransition

Asia-Pacificiswell-positionedfortheglobalenergytransitionduetoitsabundantandvariedrenewableenergyresourcesandregionalgov-ernments’focusonachievingcarbonnetzero

goals.Harnessingsolar,wind,andhydroenergyopportunitiesrequiresinvestmentsingreentechnologiesandrenewableenergyprojects.In

andinternationalbusinessestothrive12WhiletheGulfCooperationCouncil(GCC)countriesfocusoneconomicdiversificationbyinvestingincapital-intensiveindustries,theLevantregionemphasizesbuildingsoundindustrialinfrastructure,whichexhibitsdistinctindustrialpolicyapproachesandreflectstheiruniqueeconomiccharacteristicsanddevelopmentgoals13

ThePacificIslandsfocusprimarilyonsustainableresourcemanagementduetotheirvulnerabilitytoclimatechange,geographicalisolation,lim-itednaturalresources,andsmalldomesticmar-

kets14Overcomingtheseconstraintsrequiresinnovativeapproachestoindustrialdevelop-ment,sustainablepractices,andregionalcoop-eration.Digitizingfisheriesthroughe-reportingande-monitoringimprovesstockassessmentsandcombatsillegal,unreported,andunregu-latedfishing,makingthefishingindustrygrowandultimatelycontributingtoGDPandemploy-mentgrowth.

EastAsia,China’seffortstobecomealeaderinthecleanenergysectorareexemplifiedbyitsNationalEnergyVehicleIndustrialDevelopmentPlan,whichhasdriventhecountry’srapidexpan-sionofitsEVsectorandpositionedthecountryontracktoachieveitsnetzerocarbontargetby206015Theseinvestmentsreflectabroaderstra-tegicshifttowardssustainableeconomicmodels,wherecleanenergyindustriesarebecomingacentraldriverofgrowth.

Otherkeyinitiatives,suchasSaudiArabia’sNEOMGreenHydrogenProject,exemplifyasuccessfultransitionfromfossilfuelstosustainableenergy.Thisprojectaimstoproducegreenammoniaandwillsetthestageforlarge-scalecleanenergyproductionintheregion.Theseinitiativesdem-onstratehowAsia-Pacificcountriesarealigningtheirindustrialpolicieswiththeglobalenergytransitionwhilecapitalizingontheirrenewableenergypotential.

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Digitalization

FourthIndustrialRevolution(4IR)technologiesarecrucialinenhancingindustrialcompetitive-nessandproductivityintheAsia-Pacificregion.CountrieslikeChina,IndiaandotherCentralandSouth-easternAsiannationshavedevel-opedstrategiestoacceleratetheadoptionofdigitaltechnologiesacrosskeysectorssuchasmanufacturing,agriculture,mining,andservic-es16However,thewidespreadadoptionofdigitaltechnologiesrequiresskillsandinfrastructure17InitiativeslikeIndia’sSAMARTHUdyogBharat4.0reflecthowindustrialpoliciesarebeingadaptedtoembracedigitalization.Theprogrammepro-motestheadoptionofIndustry4.0technolo-giesinIndianmanufacturingfirmsbyactingasacatalystforinnovation,skilldevelopmentandenhancedcompetitiveness.

Despitesomeprogress,significantchallengesremain,particularlyintermsofinfrastructure.ManycountriesinCentralAsia,SouthAsiaandthePacificIslandslackthenecessarydigitalinfrastructuretocapitalizeonthesetechnolo-gies.Expandingbroadbandaccessandbuildingtheinfrastructurenecessarytosupportdigitalindustriesiscriticalforensuringthatcountriesarenotleftbehindinthedigitalrevolution.

Globalrebalancing

Thereconfigurationofglobalvaluechains,drivenbygeopoliticaltensionsandsupplychaindisrup-tions,presentsimportantchallengesandopportu-nitiesfortheregion.Astraditionalindustrialhubs

inEuropeandNorthAmericaexperienceshiftsintheirproductionnetworks,countriesinAsia-Pacificarepositioningthemselvestoattractinvestments

andcapitalizeonthesechanges.China,South-

easternAsia,andSouthAsiaareimplementingstra-tegicpoliciestoattractFDIandenhanceregionalcompetitiveness.

South-easternAsiannationssuchasVietNamandMalaysiahavealreadybeguntobenefitfromtheregionalizationofglobalvaluechains.Thesecountriesareemergingasattractivedestinationsforrelocatingmanufacturingactivitiesfrommoreexpensiveorgeopoliticallyunstableregions.TheuseofindustrialparksandSEZs,suchastheBah-rainInternationalInvestmentPark,demonstrateshowstrategicallydevelopedSEZscanbecomecata-lystsforindustrialdiversificationandeconomicmodernization.

Regionalintegration

Strengtheningregionalcooperationandtradeagreementsiscrucialforeconomicstabilityand

regionalgrowth.Regionalindustrialpoliciescansupportsmallandmediumenterprisegrowth,innovation,andindustrialdiversification.Exam-

plesliketheGulfOrganizationforIndustrialCon-sulting(GOIC)illustratethebenefitsofregionalpolicycoordination18GOIC'seffortsarefosteringthedevelopmentofhigh-techindustries,suchasrenewableenergyandhealth,toreducetheGCC’srelianceontheoilsector.

InthePacificIslands,regionalcooperationinsus-tainablefisheriesmanagementcanhelpaddresschallengessuchasillegal,unreported,andunreg-ulatedfishing,whichthreatensthesustainabilityofthefishingsector.ThePartiestotheNauruAgreementandtheVesselDaySchemehavehelpedstrengthencooperationamongthePacificIslands.Thiscooperationhasenabledcountriestomanagetheirfisheriesbetter,generaterev-enuetofinancetheirnationalbudgets,ensurefoodsecurityandcreateemploymentopportuni-tiesinoneoftheirmostimportantindustries19Theseinitiativesexemplifyhowcollectiveactioncanpromotesustainableresourcemanagementandcontributetoeconomicdevelopment.

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:-Demographictransition

Asia’syoungandgrowingpopulationpresentsasignificantopportunityforeconomicdevel-opment.Ontheonehand,countrieslikeIndia,Pakistan,andBangladeshareexperiencingademographicdividend,withlargeyoungpopula-tionsthatcandriveeconomicgrowthifeffectivelyintegratedintothelabourmarket.Ontheotherhand,manyEastAsiancountries,suchasJapanandSouthKorea,faceageingpopulations,whichrequirepoliciesfocusedonenhancingproductiv-ityandprovidingopportunitiesforolderworkers.

Harnessingthepotentialofyoungpopulationsrequiresaddressinggapsinskillsandfoster-

inganentrepreneurialculture.Effectivepolicies

integratingeducationandvocationaltraining

withindustrialstrategiescanharnessthisdemo-graphicpotential.Bangladesh’sready-madegar-mentsectorisaprimeexampleofhowtargetedindustrialpoliciescancreatejobsforyoungwork-erswhilefosteringindustrialgrowth.Theready-madegarmentsectorhasnotonlyemployedmillionsofpeoplebutalsocontributedsignifi-cantlytothecountry’seconomicdevelopment.

Atthesametime,policyinterventionsareneededtoaddresstheneedsofageingpopulations.

Countrieswithageingpopulationsarelookingforwaystoenhanceproductivityandensuretheinclusionofolderworkersinthelabourmarket.

Policiesthatfocusonskilldevelopmentandlife-longlearningwillbecriticalformaintainingeco-nomiccompetitivenessinthesecountriesastheyadapttodemographicchanges.

Lessonslearned

TheexperiencesacrossAsia-Pacificpresentcom-monchallengestoovercomeanddemonstratehowindustrialpolicycanbeputtoworkfortheachievementoftheSDGs.Fiveimportanttake-awaysare:

1.Embracingstrategicindustrialpoliciesthataretailoredtonationalandregionalstrengthsiscrucialforsustainablegrowth.Policiesshouldalsoleverageglobalmegatrendstocatalyserapidindustrializationandeconomicgrowth.

2.Thesuccessofindustrialpoliciesdependsontheirflexibilityandadaptabilityinresponsetoglobalchanges,suchasshiftsinproductionnetworksandthereconfigurationofglobalvaluechainstowardsgreaterregionalization.

3.Balancingglobalintegrationwithlocaldevel-opmentneedsisimportanttofostersustain-abledevelopmentandregionalcooperation.

4.Investingineducationandskilldevelopmentbuildsaresilientindustrialsector.Countriesneedtofocusandinvestinhumancapitaldevelopmentandfosteracultureofinnova-tionandentrepreneurshiptobuildaresilientanddynamicindustrialsector.

5.Integratingindustrialpolicywithinnovationstrategiesenhancescompetitivenessandeco-nomicdiversification.Governmentsplayapiv-otalroleinnurturingsectorsthatsuccessfullyleverageadvancedtechnologies,whichiscriticalforadiversifiedeconomy,competitiveness,andtransitioningtowardscleanerenergysources.

Inconclusion,Asia-PacificcanaccelerateitsprogresstowardsindustrialdevelopmentandtheachievementoftheSDGsbyaddressingcriticalchallengesininnovationandemployment,andbyleveragingopportunitiesinenergytransition,digitalization,regionalintegration,anddemo-graphicchanges.

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Endnotes

1.ThisbriefsummarizesthemainfindingsandmessagesofUNIDO(2024)“

IndustrialDevelopmentReport2024.

TurningChallengesintoSustainableSolutions:TheNew

EraofIndustrialPolicy

”,Chapter6.Itisimportanttonotethatthisbrieffocusesonthelong-termdevelopmentsandperspectivesintheregionanddoesnotconsidertheimpactofrecentgeopoliticalconflictssuchasthewarinMiddleEast.

2.See

UNIDO(2024)

,Chapter2.

3.TheanalysisofthisreportfocusesonthedevelopingeconomiesofAsia-Pacific,definedasthosenotclassifiedbyUNIDOashigh-incomeindustrialeconomies.Thelatestclassificationisavailablein

UNIDO(2022)

.

4.Itisimportanttonotethattherearesub-regionaldiffer-encesintheSDGindicatorspresentedinthispolicybrief.Toexplorethesub-regionaldataonSDGprogressforAsia-Pacific,seeFigure6.2.page115of

UNIDO(2024)

.

5.ThetargetforinnovationisgivenbythebestperformercountryinthecorrespondingSDGindicatorsduringtheperiodofanalysis.See

UNIDO(2024)

,AnnexAforthedetails.

6.See

UNIDO(2024)

,Section6.3formoreinformationonpol-icycases.

7.SeeMishrif,A.(2024).“

COVID-19EffectsontheGlobal

Economy:AnOverview

”,inMishrif,A.(eds)EconomicEffectsofthePandemic.ThePoliticalEconomyoftheMiddleEast.PalgraveMacmillan,Singapore.

8.EastAsiaincludesChina,D.P.R.ofKorea,HongKongSAR,China,MacaoSAR,ChinaandMongolia.South-easternAsiaincludesCambodia,Indonesia,LaoP.D.R,Malaysia,Myanmar,Philippines,Thailand,Timor-LesteandVietNam.CentralAsiaincludesKazakhstan,Kyrgyzstan,Tajikistan,

TurkmenistanandUzbekistan.SouthernAsiaincludesAfghanistan,Bangladesh,Bhutan,India,Iran(I.Rof),Mal-dives,Nepal,PakistanandSriLanka.WesternAs