创新驱动下的部际合作关系——基于政策文本量化分析

Inter-ministerial Cooperation Driven by Innovation:Based on quantitative analysis of policy texts

创新政策作为政府意图和行为取向的外化体现,其主体协调和措施协调对部门间的合作关系具有一定的解释力。以2013—2018年中国国务院各部门单独及联合行文的712条创新政策文本为样本,分年度绘制政策发文部门的合作关系网络图;从供给侧、需求侧和环境侧3个维度对创新政策措施进行量化,并测算部门间政策措施的协调度,对创新驱动发展战略实施后创新政策主要制定部门的合作现状展开定量分析。研究发现:中国已形成以科技部、工信部、发改委和财政部4部门为核心的创新政策合作网络,且科技部与发改委占据主导地位;部际合作可以改善单一部门政策措施应用的失衡,但在中国的创新政策实践中作用效果尚不明显;部际政策措施协调差异受部门职责范围和中央政府政治压力共同影响。

Innovation policy is the externalization of government intention and behavior orientation,the coordination of policymakers and policy measures can explain the interdepartmental collaboration.Based on 712 innovation policy texts written by various departments of the State Council of China from 2013 to 2018,the cooperation network of policymakers is drawn annually.From dimensions of supply side,demand side and environment side,quantifies innovation policy is measured.And the coordination degree of policy measures among departments is calculated.From these data,the research analyzes the cooperation status after the implementation of innovation-driven development strategy of main innovation policymakers quantitatively.The results show that the MOST,the MIIT,the NDRC and the MOF have formed a core cooperation relationship in the practice of innovation policies.The MOST and the NDRC occupy a dominant position in the cooperation network.Inter-ministerial cooperation can improve the imbalance in the application of policy measures by a single department,but the effect is not yet obvious in the practice of innovation policies in China.Differences in the coordination of policy measures among departments are jointly affected by the scope of departmental responsibilities and political pressure from the central government.