政策协同对政策效力的影响——基于227项中国光伏产业政策的实证研究

筛选了2007-2015年间国家颁布的227条光伏产业政策,提出了光伏产业政策评估标准,在此基础上,构建了产业政策协同度模型,探讨了政策措施协同对产业绩效的影响,并对2011年前后的产业政策措施实施状况进行了对比分析。研究结果表明：我国光伏产业政策措施协同度不断上升的同时,政策力度呈下降趋势,但光伏产业政策措施协同并非越强越好,不同政策措施协同对产业绩效影响具有方向性差异;政府在使用财政税收措施时应当首先考虑监管保障措施而非规范措施的协同使用,而实施金融措施时,则应强化引导措施的协同使用,适度弱化过多的监管保障和规范措施;此外,从政策梳理看,“外围技术包围”的技术突破路径无法改变我国光伏领域低端技术锁定局面,适当增强科技部门话语权,走“核心技术突围”之路。

Influences of Policy Coordination on Policy Effectiveness: An Empirical Study Based on 227 Chinese Photovoltaic Industry Policies

This article selected national 227 photovoltaic industry policies from 2007 to 2015 and proposed the evaluation standards for photovoltaic industry policy. Based on this, we built an industrial policy coordination model and discussed the influences of policies coordination on industry performance. Lastly, we did a comparative analysis of the industrial policy implementation before and after 2011. The results show that: with the rising synergies of Chinese photovoltaic industry policies, the policy strength decreased. However, more synergies of Chinese photovoltaic industry policies do not always mean better. Different synergies of policy affect industrial performance in different ways. The government should 1) consider the cooperative use of supervision and safeguard measures rather than regulation measures when utilizing fiscal and tax measures; 2) strengthen the cooperative use of guiding measures when implementing financial measures, with moderate weakening of the excessive use of supervision and safeguard measures, or regulation measures. In addition, from the perspective of policy, "technological breakthrough path surrounded by peripheral technology" cannot change the low technology lock situation in our photovoltaic field. Hence, we should strengthen the discourse power of the science and technology departments, taking the road of "core technology breakthrough".