The author gives theoretical interpretation of modern approaches to the concept of innovative cluster, using it as a basis for distinguishing general regularities that characterize the essence of the "cluster" concept. Analysis of the practice of these institutions formation and development in the Russian Federation allowed the author to identify the problems of public administration in this area. She suggests an approach to the creation of a high-tech cluster functioning on the basis of a business incubator in a corresponding core business. The author elaborates the requirements to the core incubator and the tasks it solves. She also suggests a regional innovation cluster structure, which differs from the existing ones by the proposal to use a business incubator as a cluster core. A model of innovative cluster management system is developed in the article.