创新驱动政策如何提升城市科技人才集聚水平？

——来自国家自主创新示范区的证据

唐乐¹　张海^1,2　张冬洋¹

（1.首都经济贸易大学；2.重庆第二师范学院）

摘要：人才是创新之源，是推动科技进步和形成新质生产力的能动主体。本文将国家自主创新示范区政策视为一项准自然实验，基于国家创新系统与推拉理论，利用2003—2022年中国278个地级及以上城市面板数据，构建多时点双重差分模型，评估了以国家自主创新示范区为代表的创新驱动政策对城市科技人才集聚的影响及其机制。研究发现：国家自主创新示范区政策通过政府战略引领与推动产业结构转型提升了城市科技人才集聚水平；相较于普通地级市，该政策对直辖市和省会城市科技人才集聚的影响更强，大城市受到政策影响的效果最为明显，中小城市其次，而特大城市最弱；该政策对城市科技人才集聚水平的提升作用只在东部与西部地区有效果，而在中部地区不明显；与非城市群城市相比，该政策对城市群城市科技人才集聚水平提升的促进效应更明显。本文的研究结论为充分发挥创新驱动政策的科技人才集聚效应提供了政策启示，对推动科技创新和加快形成新质生产力具有重要意义。

关键词：创新驱动政策；科技人才集聚；国家自主创新示范区；政府战略引领；产业结构转型

作者简介：唐乐，首都经济贸易大学劳动经济学院副教授、博士生导师，北京，100070；张海，首都经济贸易大学劳动经济学院博士研究生；重庆第二师范学院经济与工商管理学院讲师，重庆，400067；张冬洋，首都经济贸易大学经济学院教授、博士生导师，通信作者。

基金项目：教育部人文社会科学研究规划基金项目“政府绿色采购对企业高质量创新的影响研究——基于‘激励—阻滞’双重视角(25YJA790080)；中国人民大学习近平新时代中国特色社会主义思想研究工程成果（22XNQ010）；中国人民大学科学研究基金中央高校基本科研业务专项资金资助项目(20XNQ041)；重庆市哲学社会科学规划项目“变革型领导提升‘专精特新’企业双元创新能力的重点攻略与路径选择”（2022NDYB67）

引用格式：唐乐,张海,张冬洋.创新驱动政策如何提升城市科技人才集聚水平?——来自国家自主创新示范区的证据[J].经济与管理研究,2026,47(1):131-149.

Can Innovation-Driven Policies Enhance the Level of S&T Talent Agglomeration in Cities?

—Evidence from National Independent Innovation Demonstration Zones

TANG Le¹, ZHANG Hai^1,2, ZHANG Dongyang¹

(1. Capital University of Economics and Business, Beijing 100070;

2. Chongqing University of Education, Chongqing 400067)

Abstract: Against the backdrop of intensifying global technological competition, talent serves as a critical driver of economic growth. How policy can promote talent agglomeration has become a key societal concern. This paper takes the National Independent Innovation Demonstration Zones (NIIDZ) policy as a quasi-natural experiment. Drawing on the national innovation system and push-pull theory, and utilizing panel data from 278 prefecture-level and above cities in China from 2003 to 2022, it constructs a multi-period difference-in-differences model to assess the impact of innovation-driven policies, exemplified by the NIIDZ policy, on scientific and technological (S&T) talent agglomeration in cities, and the underlying mechanisms.

The findings reveal that the NIIDZ policy can increase S&T talent agglomeration in cities by leveraging government strategic guidance and promoting industrial-structure transformation. The policy exerts a stronger effect on talent agglomeration in municipalities and provincial capitals. Across city size categories, the policy exhibits the most pronounced impact in large cities, a moderate impact in medium and small cities, and the weakest impact in megacities. It also generates positive effects in the eastern and western regions, yet shows no significant effect in the central region. Furthermore, the policy demonstrates a more substantial promoting effect on S&T talent agglomeration in cities within urban agglomerations.

The marginal contributions lie in three aspects. First, it integrates the NIIDZ policy and S&T talent agglomeration into a unified analytical framework to examine the talent agglomeration effects of innovation-driven policies, thereby broadening the scope of existing research. Second, it investigates the mechanisms underlying the impact of the NIIDZ policy on S&T talent agglomeration, thereby enriching the understanding of determinants of S&T talent agglomeration and extending the applicability of established theoretical frameworks. Third, it analyzes the heterogeneous effects of the NIIDZ policy on S&T talent agglomeration across multiple dimensions, offering theoretical support for policy implementation and the enhancement of cities’ S&T talent agglomeration levels.

This paper suggests that the government should value the top-level design and institutional arrangements for S&T talent agglomeration within innovation-driven policies and fully leverage these effects. It is also essential to optimize the pathways through which national innovation-driven policies enhance S&T talent agglomeration in cities and refine these policies for precision implementation, so as to enhance their effectiveness across different types of cities. These findings offer policy insights into maximizing the S&T talent agglomeration effect of innovation-driven policies, and hold significant implications for advancing S&T innovation and accelerating the development of new quality productive forces.

Keywords: innovation-driven policy; scientific and technological talent agglomeration; national independent innovation demonstration zone; government strategic guidance; industrial structure transformation

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