公共采购模式变革:从创新中性到创新友好

The Reform of Public Procurement Mode:from Innovation-Neutrality to Innovation-Friendliness

公共采购是拉动创新的核心工具之一,公共采购模式限定了相关主体的行动空间,对公共采购发挥驱动创新的政策价值具有重要影响。基于开放式创新视角与创新导向型公共采购的基本原理,对公共采购模式影响创新的关键因素进行系统识别,构建有序probit模型,运用来自供应商的调查数据进行实证分析。结果发现:我国现行的公共采购模式设计呈现创新中性特征;需求表达方式、采购数字化、需求重叠度等因素对供应商创新性响应具有显著正向影响;将上述因素嵌入相关公共采购制度,可以提高我国公共采购模式的创新友好程度。最后,提出公共采购模式变革的基本思路:在兼顾成本导向与创新导向的情况下,对公共采购模式进行分类设计,包括常规型集中采购、常规型分散采购、创新导向型集中采购和创新导向型分散采购。

Given the large scale of public procurement and its significant share in aggregate demand,the reform of public procurement mode is a topic that has long been concerned by academia,political circles and the public.Public procurement mode is the sum of the behavioral constraints of public procurement participants under the relevant legal framework in a country or region,and it limits the behavioral space of relevant subjects and has an important effect on the policy value of public procurement to drive innovation.In recent years,a group of innovation-oriented public procurement(PPI)practices have been widely carried out in many countries.However,the implementation effect falls short of the expected goal due to the lack of innovation-friendly procurement processes and their application.The research on public procurement mode and innovation mainly involves PPI and public procurement mode reform.In terms of the research on PPI,scholars have systematically conceptualized PPI and provided empirical evidence for the impact of public procurement on innovation.However,the study on the implementation and effective promotion mechanism of PPI is still in its infancy.In terms of the reform of public procurement mode,there are few studies on the relationship between the public procurement mode and innovation,as well as the specific conditions under which the public procurement mode drives or hinders innovation.Even less research has been done to promote the shift from an innovation-neutral procurement mode to an innovation-friendly one.Thus,this paper discusses how to optimize the design of public procurement mode to improve its innovation friendliness so as to release the potential policy value of public procurement in innovation-driven aspects,and accelerate the implementation and promotion of PPI in China.From the perspectives of open innovation and the basic principles of PPI,this paper explores the internal mechanism of how public procurement mode affects suppliers'innovative responses in the Chinese context,and conducts an empirical analysis based on questionnaire survey data with Shaanxi Province as an example.First,it clearly defines the public procurement mode and its design connotation.Then,from the perspective of open innovation by suppliers,the key factors affecting the innovative response of suppliers in the process of public procurement are systematically identified,the theoretical framework is constructed,and the research hypotheses are proposed.Next,on the basis of the investigation into the suppliers who have participated in PPI projects,a set of ordered Probit models is constructed for empirical analysis.Finally,the empirical analysis results are summarized,and then the countermeasures are put forward according to the application situation of PPI in China.The empirical analysis results show that(1)the design of the current public procurement mode presents an innovation neutral feature;(2)demand expression,pre-bidding dialogue,procurement digitization,demand intensity,demand overlap degree and application information feedback have significant positive effects on suppliers'innovative response;(3)embedding the above six factors into the relevant public procurement system can improve the innovation-friendliness of Chinese public procurement mode;(4)in order to fully release the innovation-driven policy potential of public procurement,it is necessary to classify China′s public procurement mode into four types:conventional centralized procurement,conventional decentralized procurement,innovation-oriented centralized procurement and innovation-oriented decentralized procurement.It is suggested that the government should first introduce innovation in the procurement preparation stage,including expanding the scale of innovative procurement,introducing competitive dialogue,and improving the innovative procurement capacity of public organizations.Second,it is necessary to embed innovation in the bidding evaluation and contract awarding processes,including optimizing technical specifications,innovating procurement evaluation standards,and improving the function of digital technology in promoting communication between supply and demand.Third,the government should optimize the innovation incentive structure and risk management in procurement implementation and management,including optimizing the IPR distribution mechanism,introducing performance contracts,and establishing a fault-tolerant mechanism for public organizations'innovative procurement.In summary,this paper reveals the internal mechanism of how public procurement mode affects suppliers'innovative response and deepens the understanding of the micro mechanism of PPI;meanwhile,it classifies the public procurement mode,which provides a possible new perspective for optimizing the public procurement mode design.