政府创业政策对城市创业的影响及其作用机制——基于国家创业型城市的准自然实验

Effect of Government Entrepreneurship Policy on Urban Entrepreneurship:A Quasi-natural Experiment Based on National Entrepreneurial Cities

创业是促进创新型经济增长的重要动力,也是促进新时期中国经济高质量发展的新引擎。本文以国家创业型城市试点政策为研究对象,基于2005—2017年中国281个地级市的面板数据,采用双重差分模型实证检验政府创业政策对城市创业的影响。研究发现:国家创业型城市试点建设显著促进了城市创业,这一结论在经过一系列假设检验和稳健性检验后仍然显著;异质性检验发现,城市规模大、人力资本水平高、政府财政投入多以及互联网基础设施完善的城市其试点政策效果更为明显;机制研究表明,国家创业型城市试点建设影响城市创业的主要传导机制在于放松政府管制和缓解创业活动的融资难题。研究结论对于创新驱动发展战略背景下认识政府驱动创业政策工具的效果有重要意义,对如何进一步完善政府创业政策体系和促进创新创业型经济发展有着重要启示。

Since the reform and opening up,China’s social entrepreneurship activities have generally experienced three major waves of self-employed entrepreneurship,Internet entrepreneurship,and mass entrepreneurship.Based on the practice of previous entrepreneurial booms,the government has played a different role in them.In keeping with the reform of the economic system,the government’s entrepreneurial policy follows the evolution logic from strict control to looseness,from looseness to permission,from permission to encouragement,and from encouragement to support.In recent years,the government has made unprecedented reforms in easing market access and simplifying the administrative approval of entrepreneurship,releasing huge institutions and policy dividends that have not only reduced the entrepreneurs’economic and institutions cost but aslo beneficial to created a good business environment and strengthen market entrepreneurial confidence.The policy experimentation of national entrepreneurial cities in 2009 was a landmark event for government-driven entrepreneurship,which became the starting point of government policy-driven entrepreneurship.Since then,governments at all levels have introduced a series of policies and measures such as supporting government venture capital guidance funds,tax relief,loan subsidies,site supply and entrepreneurship incubation have triggered to a new wave of entrepreneurship.In order to examination the performance of government-driven entrepreneurship,this study selected the"quasi-natural experiment"of the national entrepreneurial city policy experimentation,based on the panel data of 281 prefecture-level cities from 2005 to 2017 for analysis.In terms of identification strategies,this study used a difference-in-difference(DID)model to test the entrepreneurial performance of national entrepreneurial cities.As a specific implementation form of China’s progressive political reforms and"crossing the river by feeling"policy practice logic,policy experimentation selected may not be"natural experiments"in the full sense,which means that there may be systematic differences between the pilot and non-pilot cities themselves.In order to solve this selection bias,this study also conducted a series of causal identification tests and robustness tests on the basis of benchmark regression.Among them,the causal identification test includes control selection"standard",PSM-DID test,placebo test,based on county-level data testing;the robustness test includes excluding the intervals of the other relevant policies,entrepreneurship,interference from manipulation factors,and considering different sample.On the basis of systematically overcoming the endogenous of the policy and effectively alleviating the omissions of the biased variables,this study steadily finds that:(1)The policy experimentation of national entrepreneurial cities has significantly improved the entrepreneurial activity of the city.This conclusion is still significant after the PSM-DID test,placebo test,controlling other policy shocks during the same period,and excluding some samples;(2)Heterogeneity tests found that policy experimentation in large cities,high levels of human capital,more government financial input,and better Internet infrastructure have more effective;(3)Mechanism research shows that the main transmission mechanism for the impact of the policy of national entrepreneurial cities on urban entrepreneurial activity is that the experimentation cities have relaxed government regulations and eased financing difficulties for entrepreneurial activities,in other words,the policy experimentation have helped the government to simplify reforms in administrative examination and approval and the establishment of government venture capital guidance funds will help attract venture capital and foreign direct investment.Therefore,this study believes that,from the current point of view,the effect of the policy of national entrepreneurial cities is in line with the original intention of policy design,but it is necessary to pay attention to balancing regional development gaps.The research conclusions of this research are of great significance for understanding the tools of government-driven entrepreneurship policies in the context of the simplified administration and decentralization reform and innovation-driven development strategy in the new period,and have important implications for how to further advance and continue the policy experimentation of national entrepreneurial cities to improve the level of cities’entrepreneurship.