政府参与创新有助于提高城市创新效率吗——基于国家创新型城市试点政策的实证检验

随着区域创新步入创新生态系统的多元层面，政府与经济主体交互共生对促进区域创新具有重要作用。以2008年首个国家创新试点城市深圳为例，借助合成控制法，基于2000—2019年中国226个地级市数据，构造与深圳尽可能相似的“合成深圳”。在此基础上，比较分析“真实深圳”与“合成深圳”的创新效率。研究发现，创新型城市试点政策对全要素生产率和技术进步具有显著正向作用，而对创新效率的影响则呈倒U型；政策实施前期，政策效应逐渐释放，创新效率显著提高，随着时间演化，由于政策时效、技术变革和需求转移等原因，政策红利逐渐减少，对创新效率的影响也降低，但尚未完全消失。

Does Government Involvement in Innovation Help Improve the Efficiency of Innovation in Cities？An Empirical Test Based on National Innovative City Pilot Policy

Innovation promotes economic growth by adjusting the combination of production factors and is the core driving force to realize innovation-driven development. As regional innovation enters into multiple levels of innovation ecosystem, the interaction and symbiosis between government and economic subjects play an important role in promoting regional innovation. In order to realize the transformation of urban development through independent innovation, the National Development and Reform Commission of China officially approved Shenzhen as the first "National Innovative pilot city" in June 2008, and gradually listed Dalian, Qingdao, Xiamen and other cities as innovative pilot cities thereafter. The construction and development of innovation-oriented cities can not only realize the investment-driven and even innovation-driven transformation, but also help realize the transformation from unbalanced development to shared and coordinated development.#br#On the basis of the data samples of 226 prefecture-level cities in China from 2000 to 2019, this paper empirically examines the impact of Shenzhen's national innovative city pilot policy in 2008 on urban innovation efficiency by using the synthetic control method, and explores the mechanism of government participation in innovation on regional innovation efficiency improvement. The validity and robustness of regression results are tested by breakpoint regression and placebo test.#br#The results show that the national innovative city pilot policy implemented for the first time in Shenzhen in 2008 has a significant promoting effect on the improvement of total factor productivity, and the effect of the national innovative city pilot policy on the innovation efficiency of Shenzhen presents an inverted U-shaped trend. The implementation of this policy has a significant positive impact in the early stage, which can effectively guide the innovation behavior of enterprises, stimulate the innovation power of enterprises, and help enterprises to cross the valley of death of innovation. But the effect is time-limited. In the middle period of policy implementation, with the gradual release of policy effects, increasingly fierce market competition and constant change of emerging technologies, the dividend effect of government policy support for industrial innovation declines, and an inflection point appears in the government's promotion effect on innovation. After that, the effect of policy dividend gradually weakens, but this does not mean that relevant policy dividend disappears completely, but maintains a low continuous positive impact.#br#Therefore, in the initial stage of promoting urban innovation, the government should pay attention to guide innovation and make up for market failure due to the existence of market failure problems such as high innovation risk and long cycle, information asymmetry, technology spillover and imitation, so as to help innovation subjects to cross the valley of death. In the middle period of policy implementation, the government should encourage innovation behavior in industry guidance, financial support, financial environment, property rights protection, trade and export. In the later period of policy implementation, the government should adjust or formulate new innovation incentive measures according to the innovation situation and regional innovation reality, according to the law of urban development and the law of market competition, and strengthen the sustainable effect of the original innovation incentive policies.#br#According to the research conclusion, this paper puts forward three countermeasures and suggestions. First, the government should optimize the supporting mechanism for scientific and technological innovation, improve the funding system for scientific and technological innovation and the high-level talent flow mechanism to stimulate the vitality of the main body of scientific and technological innovation in the start-up period of the construction of innovation-oriented cities. Second, in the implementation process of promoting the construction of an innovation-oriented city, the government should improve all kinds of scientific and technological innovation carriers, so as to accelerate the agglomeration of scientific and technological innovation resources, promote the transformation of scientific and technological achievements, reduce the cost and risk of scientific and technological innovation, and enhance the innovation vitality and entrepreneurial power of the city. Third, the government should improve the service system of scientific and technological innovation, attach importance to the cultivation of scientific and technological intermediary service platform, strengthen the collaborative innovation among enterprises, government, research institutes, intermediary institutions and knowledge users, and enhance the synergistic effect of urban innovation subjects, so as to achieve major technological breakthroughs and breakthroughs.#br#