Imo, I absolutely consider it a policy failure because it is the China government relying on the chicken and egg situation while ignoring the strategic realities. In a geostrategic situation like we've had since the Pivot to Asia, there is literally no choice but to invest heavily even in those things that seem impossible. The alternative is surrender. Since China didn't bow down before America like Japan did, they should have naturally went all out. Instead, China continued to underfund core technologies in order to maximize profits in the most feasible commercial areas it was closest to achieving. This is exactly what American strategists count on to happen. I'm not advocating ONLY investment in core technologies and ONLY focusing on weaknesses. This is not a binary choice. However, China made the fatal mistake of trusting globalization as if the American control freaks would never touch it because they've been promoting it since WWII.I think I understand what you mean now. My impression is that China didn't focus on even core technologies because it could not do so: 15 years ago, the underlying technological base did not exist. So the Party developed what it could, the more software-like chip designs. I would not call it a policy failure; it was rather a lack of feasible alternatives.
Now the situation is different. The Middle Kingdom has comprehensive technologies, or will soon develop them with internal resources. Total self-sufficiency is possible in semiconductors now.
Those previously believed impossible goals of indigenizing semiconductor equipment and materials was once believed to be out of reach for at least 10+ years, if ever. That was the consensus opinion from industry experts only 3 years ago! It wasn't until Trump used the sledgehammer that it forced China on the path it is now. If industrial policy emphasized semiconductor equipment and materials back in the early days of the Pivot to Asia, we would be 5 years earlier in the game and China would have DUV comparable to Nikon/ASML, TSMC/Samsung now and probably have commercialized EUV by 2020.