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Exploiting the Implementation Gap: Policy Divergence and Industrial Upgrading in China's Wind and Solar Sectors

  • Jonas Nahm (a1)
Abstract

This article argues that manufacturing policies of Chinese local governments have provided an important corrective to some of the weaknesses inherent in the central government's indigenous innovation framework, most importantly its inattention to the importance of advanced manufacturing capabilities for innovation. Based on an original dataset of over one hundred executive interviews conducted with 43 Chinese wind and solar firms, I identify both central government R&D funding and continued local government support for manufacturing as critical factors in enabling innovation among China's renewable energy firms. In particular, this article shows that firms have utilized a combination of both central and local government policies to establish unique engineering capabilities required for innovation in commercialization and scale-up to mass production. The findings suggest that continued local government support for the manufacturing economy has not undermined central government innovation policies, but has (1) broadened the range of resources available to entrepreneurial firms and (2) enabled new options for industrial upgrading that are outside the conceptualization of innovation underlying the central government's indigenous innovation framework.

这篇论文讨论了中国地方政府针对制造业出台的政策在很大程度上弥补了中央政府自主创新政策框架内的不足, 尤其是矫正了中央政府疏忽了先进制造能力创新的问题。基于对 43 家中国风能太阳能企业 100 位总经理进行的访谈所得到的原始数据的分析, 我认为中央政府提供的研发资金和地方政府对制造业的支持都是促使中国可再生能源生产方式进行创新的重要因素。这篇论文特别指出, 企业依靠国家和地方的双重政策来实现商业化和获得大规模生产中所特别需要的工程能力。研究指出, 地方政府对制造业经济的后续支持没有违背中央政府创新政策的要求, 而是(1)为企业提供了更多的可用资源和 (2) 为企业的产业升级提供不同于中央政府自主创新框架之外的新选择。

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