制度、政策与创新体系建构:韩国政府主导型发展模式与启示

Institution,Policies and the Building of National Innovation System:South Korea’s Government-Led Development Model

创新驱动中的政府角色是值得探究的重要议题。东亚韩国,是罕见实现创新驱动的后发国家,其创新发展过程又经历了威权主义向民主自由的制度转型,政府对创新驱动的角色作用更值得探讨。论文聚焦政府视角,扩展了雷奥尼奇的创新子系统理论,并以扩展理论为研究框架,探讨政府如何通过制度与受制度约束的创新政策,促进创新体系的多维子系统的发展。韩国创新发展随威权制度向民主制度的结构变迁,政策干预由政府主导的国家发展模式努力向市场主导的市场增进模式转变。制度的变迁是政府自主与被动双重驱动下的选择,从而经历了长期复杂的历程,制度变迁与政策调整大体适应了创新发展的阶段需求,但民主自由化制度下,威权制度形成的路径依赖与政府主导的自由化历程,使政府在政企关系、政银关系和企业内部治理结构三方面主导性嵌于市场增进型的创新体系建构,形成大企业集中化的创新体系结构,为自主创新的持续发展带来潜在障碍。这些为具相似制度背景的中国形成重要启示。

SouthKorea,one the few east Asian countriesto completely emerge from a period of technological backwardness,progressed towards innovation down a path that included institutional change from an authoritarian system to a democratic one.This makes it a significant case for understanding the state’s role in the development of an innovative economy.This article,from the perspective of the state’s role,improves Leoncini’s innovation system model and uses the improved model to study how the state promotes the developments of all the innovation sub-systems by way of institutional arrangement and policy making.South Korea’s innovation development progressed through institutional transition;but,public policy interventions also transformedthenation’s government-led national development model in to a marketled market enhancement model.This institutional shift,driven by government’s both active and passive choices,was a long-termed and complicated process.And the changes brought about by the transition,generally,met the nation’s needs at each innovation stage.However,even under a democratic system,the path-dependence of the past authoritarian system and top-down de-regulation process,caused the government-led process to embed itself into the market-enhancing innovation system from the perspective of the state-enterprise relationship,the state-bank relationship and the enterprise governance structure. This has resulted in an innovation system dominated by large-scale enterprises which has prevented the sustainable development of independent innovation.These findingshave significant implications for China.