地方政府创新政策工具偏好测量——基于四川省政策文本的分析

Preference Measurement of Local Government Innovation Policy Tools: An Analysis Based on The Text of Sichuan Policy

创新是提高综合国力和国家竞争力的重要方式,我国各级政府均高度重视并出台系列政策推动创新驱动发展。四川省承担着西部地区转型探索的重任,为全国全面创新改革试验区建设贡献了宝贵经验。从政策文本分析视角,构建政策工具—企业生命周期二维分析框架,借助NVIVO11和UCINET等软件对2012-2020年四川省颁布的82份创新政策文件进行政策内容量化分析,研究发现四川省对创新给予了全方位激励和规制,但仍然存在一些问题:政策发布数量呈现平稳到快速增长再到缓慢回落的趋势,政策效力偏低且可操作性不强;政策颁布主体虽呈现多元化态势但联系不够紧密,形成两个小群体,即以科技厅、财政厅、发改委为代表的执行主体,以及省人民政府办公厅、省委办公厅为代表的规划主体;政策工具应用存在过溢或缺失,呈现重供给、轻需求的工具偏好,政策工具作用目标取向模糊;工具应用与创新主体生命周期不匹配,工具内部结构分布不均衡。

The new round of technology revolution and industrial change is accelerating, and the subversion technology is constantly emerging. The science and technology revolution is reshaping the world competition pattern, and innovation has also become an important means to improve comprehensive national strength and national competitiveness in the era of knowledge economy. The government attaches great importance to innovation and has issued a series of promotion policies. Sichuan is the only provincial "comprehensive innovation and reform test area" in the western of China, and it is responsible for transition exploration in the western region. The innovation policies issued in Sichuan are typical and representative, and its experience is worth of exploring. However scholars have studied a large number of regional innovation policies, few of them explore the areas with rich experience in reform. Considering the limitations and urgency of the current study, this paper constructs the analysis framework based on policy tool theory, and analyzes the innovation policies issued in Sichuan province, the rationality and existing problems of Sichuan Policy Tools in order to provide references to the optimization and design of subsequent policies. From the perspective of policy text, this paper constructs a two-dimensional analysis framework of policy tools and enterprise life cycle. With the help of analysis software such as NVIVO11 and UCINET, 82 innovation policies issued by Sichuan province during 2012-2020 is quantitatively analyzed. The results show that local governments have given incentives and regulations to innovation, but there are still some problems. The number of policies presents the phenomenon of stable development to rapid growth and then slow decline. Policies also have low authority and operability. Although the subject of policy promulgation presents diversified phenomenon, the connection is not close enough. There are two small groups: the executive subject represented by the Science and Technology Agency, the Department of Finance and the National Development and Reform Commission, and the planning subject represented by the General Office of the People’s Government and the General Office of the Provincial Party Committee. There are overspill and insufficient use of policy tools as well as the incompatibility between policy tools and enterprise life cycle. At the same time, due to the unbalanced structure of policy tools there is the overflow risk and the effect is insufficient. The research shows that the government gives more consideration to policy operation and temporary implementation, and the policy stability is still insufficient. The imbalance of tool applications illustrates that the government in Sichuan province haven’t made full use of policy tools, and the overall government concept is not formed, the cooperation between government departments is also not enough, thus it’s difficult to form policy synergy. In order to cope with the problem of Sichuan policy tools in practice, government departments can consider from the following aspects. The first is to strengthen the synergy of the department, because the current policy lacks authority and operability, and there is little cooperation between different government departments. The second is to adjust the tool structure, optimize internal layout and appropriately reduce the frequency of use of supply policy tools. The government should pay attention to environmental policy tools, create a tolerant and open innovative ecological environment, break through administrative regional boundaries and promote agglomeration of resources and cross-border integration. It is suggested to apply demand-based policy tools, such as government procurement, trade control and consumer subsidies. The last is to strengthen the matching of policy tools and life cycles. The development of innovation is continuous, and the application of policy tools must match life cycle rules, and the policy tools should be reasonably applied in each link to avoid waste of resources.