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This paper analyses the development of biotechnology clusters in North Carolina (NC) and Israel. In both NC and Israel, when the biotechnology was identified as a potential strategic priority, the framework conditions were suitable for successful policy-targeting. NC presents a case of a successful transition from a traditional manufacturing economy to a knowledge economy. The most successful part of this transition was a policy-led development of a biotechnology cluster in the Research Triangle. While Israel also presents a case of a successful transition from a low-tech economy to a knowledge-intensive economy, Israel failed to develop a successful biotechnology cluster. We suggest that this failure is mostly due to a failure to implement policy to encourage such development. We argue that the elements, which separate NC's success from Israel's failure, are: a clear vision and strategic planning; timely response, long-term commitment; strong leadership; cooperation between the government, private sector and academia, and an adjustable policy-making process. [ABSTRACT FROM PUBLISHER]