Leveraging the Roles of Government and Market to Promote the Development of New Quality Productive Forces

Introduction

引 言

Since July 2023, General Secretary Xi Jinping, during his inspection tours in Sichuan, Heilongjiang, Zhejiang, Guangxi and other places, has put forward the concept of new quality productive forces and delivered a series of important expositions on their development, creatively developing the Marxist theory of productive forces. At present, a new round of scientific and technological revolution and industrial revolution is accelerating, new quality productive forces are undergoing rapid iterative development, and the global pattern of productive forces is undergoing major changes. Developing new quality productive forces is an inevitable requirement for leading the development of the world’s advanced productive forces and is also a core area and important focal point for promoting high-quality development. New quality productive forces are a theoretical generalization of the revolutionary changes in the world’s productive forces today and an important strategic positioning of the core elements of Chinese-path modernization.

2023年7月以来，习近平总书记在四川、黑龙江、浙江、广西等地考察调研时，提出新质生产力概念并对其发展作出系列重要论述，创造性发展了马克思主义生产力理论。当前，新一轮科技革命和产业革命加速演进，新质生产力快速迭代发展，全球生产力格局发生重大变化，发展新质生产力是引领世界先进生产力发展必然要求，也是推动高质量发展的核心领域和重要着力点。新质生产力是对当今世界生产力革命性变化的理论概括，也是对中国式现代化内核性要素的重要战略定位。

Developing new quality productive forces is a major new theoretical and practical proposition on the new journey of the new stage of Chinese-path modernization. Chinese-path modernization will achieve breakthrough progress through the development of the theory and practice of new quality productive forces. Developing new quality productive forces must use reform measures to remove obstacles that constrain their development, enhance the adaptability and counteractive effect of the economic system, the science and technology system, the talent development system, etc., on new quality productive forces, and form new production relations that are compatible with them. The relationship between the government and the market is the core issue of economic system reform. The Third Plenary Session of the 20th Central Committee of the CPC [1]1 The Third Plenary Session of the 20th Central Committee of the CPC, held in July 2024, focused on further comprehensively deepening reform and advancing Chinese modernization., “centering on the core issue of properly handling the relationship between the government and the market, placed the construction of a high-level socialist market economy system in a prominent position and made arrangements for key areas and crucial links of economic system reform,” providing fundamental guidance, pointing out the direction forward, and drawing a grand blueprint for China to leverage the efficient synergy between the government and the market to promote the development of new quality productive forces. Currently, the various blockages and bottlenecks China faces in developing new quality productive forces are, to a large extent, closely related to the degree of coordination and adaptability between the government and the market in scientific and technological innovation, factor allocation, and industrial upgrading. There is an urgent need to further comprehensively deepen economic system reform, especially to better leverage the efficient synergistic role of the government and the market, stimulate the vitality of innovation and creation, promote the efficient allocation of innovation factors and resources, and continuously improve total factor productivity. General Secretary Xi Jinping pointed out that new quality productive forces require both the government’s forward-looking planning guidance and scientific policy support, and the regulation of market mechanisms and continuous innovation by micro-entities such as enterprises. They are jointly cultivated and driven by the government’s “visible hand” and the market’s “invisible hand.” The “two hands” of the government and the market cooperate with each other, exert synergistic force, and operate efficiently, continuously optimizing the allocation of innovation factors. This is the institutional and mechanism foundation for promoting scientific and technological innovation and factor aggregation, and for achieving the effective transformation of scientific and technological innovation into industrial innovation. The key to removing the blockages and bottlenecks constraining the development of new quality productive forces lies in establishing a scientific and reasonable relationship between the government and the market, and better leveraging the efficient synergistic role of the “visible hand” and the “invisible hand” as two modes of allocating innovation resources.

发展新质生产力是中国式现代化新阶段新征程新的重大理论命题和实践命题，中国式现代化将通过新质生产力理论和实践的发展实现突破性进展。发展新质生产力必须用改革的手段解放束缚新质生产力发展的障碍，增强经济体制、科技体制、人才发展体制等对新质生产力的适应性和反作用，形成与之相适应的新型生产关系。政府和市场关系是经济体制改革的核心问题。党的二十届三中全会“围绕处理好政府与市场关系这个核心问题，把构建高水平社会主义市场经济体制摆在突出位置，对经济体制改革重点领域和关键环节作出部署”,为我国发挥政府和市场的高效协同作用，促进新质生产力发展，提供了根本遵循、指明了前进方向、擘画了宏伟蓝图。当前，我国发展新质生产力面临各种堵点和卡点，在很大程度上与科技创新、要素配置、产业升级中政府与市场的协调度、适应性密切关联，亟需进一步全面深化经济体制改革，尤其是更好发挥政府和市场的高效协同作用，激发创新创造活力，促进创新要素和资源高效配置，不断提升全要素生产率。习近平总书记指出，新质生产力既需要政府超前规划引导、科学政策支持，也需要市场机制调节、企业等微观主体不断创新，是政府“有形之手”和市场“无形之手”共同培育和驱动形成的。政府和市场“两只手”相互配合、协同发力、高效运作，不断优化创新要素配置，是推动科技创新、要素聚合，实现科技创新向产业创新有效转化的体制机制基础。破解束缚新质生产力发展的堵点卡点，关键在于建立科学合理的政府和市场关系，更好发挥“看得见的手”与“看不见的手”两种创新资源配置方式的高效协同作用。

I. The Generative Logic of New Quality Productive Forces

一、新质生产力的生成逻辑

General Secretary Xi Jinping pointed out, “New quality productive forces are driven by revolutionary breakthroughs in technology, innovative allocation of production factors, and deep industrial transformation and upgrading.” From the perspective of Marxist process theory, this exposition clarifies the three stages of the development of new quality productive forces and also indicates the goal orientation, key links, and mechanism of action for developing them. From revolutionary breakthroughs in technology, to innovative allocation of production factors, and then to deep industrial transformation and upgrading, this is a cyclical process of the formation and development of new quality productive forces, a transformation of productive forces from scientific and technological innovation to industrial innovation, a continuous process of generation and transformation of new quality productive forces from spiritual form to material form, from general form to specific form, from penetrating elements to substantive elements. The successive progression and cyclical movement of the three stages form the generative logic of the development of new quality productive forces. This generative logic constitutes the main links of a high-quality national economic cycle, among which revolutionary breakthroughs in technology are the core, innovative allocation of production factors is the key, and deep industrial transformation and upgrading is the foundation.

习近平总书记指出，“新质生产力是由技术革命性突破、生产要素创新性配置、产业深度转型升级而催生”。这一论述从马克思主义过程论的角度，阐明了新质生产力发展的三个阶段，也指明了发展新质生产力的目标导向、重点环节和作用机理。从技术革命性突破，到生产要素创新性配置，再到产业深度转型升级，是一个新质生产力形成和发展的循环过程，是从科技创新到产业创新的生产力变革，是新质生产力从精神形态到物质形态、从一般形态到具体形态、从渗透性要素向实体性要素的不断转化生成过程，三个阶段的接续前进和循环运动形成新质生产力发展的生成逻辑。这一生成逻辑构成高质量国民经济循环的主要环节，其中，技术革命性突破是核心，生产要素创新性配置是关键，产业深度转型升级是基础。

From the perspective of the technological elements of new quality productive forces, scientific and technological innovation is the core element for developing them. Marx pointed out that productive forces include science. In the three industrial revolutions that have occurred in human history, science and technology have played a pioneering and fundamental role. The first industrial revolution originated from the revolution in mechanics, mainly manifested in the improvement and development of cotton textile technology and steam engine technology; the second industrial revolution originated from the revolution in electromagnetism, mainly manifested in the use of electricity and its transformation of all means of production; the third industrial revolution originated from technological revolutions such as atomic theory, computer technology, space technology, and materials technology, forming a series of new technology industry clusters. Humanity entered the era of big science. In particular, the development of information technology profoundly changed the way humans process information and produce, making information elements an important component of productive forces. The current fourth industrial revolution is shaping the core role of data elements, forming the multiplier and aggregation effects of “data×” and “AI+,” thereby changing the nature of the entire social production and forming a digital, networked, and intelligent system of new quality productive forces. Industries and enterprises are the main carriers of new quality productive forces. The transformation of science and technology into real productive forces is mainly reflected in “industrial innovation,” manifested in the synergistic innovation and chain reaction of emerging industries, high-tech industries, future industries, and traditional industries. New quality productive forces are not productive forces completely detached from traditional productive forces, but rather the continuous generation of traditional productive forces into a new qualitative state. Within a large number of traditional industries, product innovation and process innovation will also constantly emerge. New quality productive forces are continuously grafted, transformed, and integrated, and these also fall within the scope of new quality productive forces. Similarly, emerging industries and future industries, on the one hand, cannot do without the industrial linkage role of traditional productive forces as upstream and downstream industries, and on the other hand, there are also a large number of traditional productive force elements within them. New quality productive forces have a “substitution” effect on traditional productive forces. New industries will destroy traditional industries, turning them into “sunset industries,” while simultaneously giving rise to “sunrise industries.” This process of continuous substitution, renewal, and elimination between industries is what Schumpeter called “creative destruction.” The industrial development sequence composed of traditional industries, emerging industries, and future industries is a process of economic metabolism, involving both substitution and complementarity, and is a process of dialectical negation. While cultivating and developing strategic emerging industries and future industries, great attention must be paid to the role of new quality productive forces in transforming and upgrading traditional industries.

从新质生产力的技术要素来看，科技创新是发展新质生产力的核心要素。马克思指出，生产力中包含科学。在人类已经发生的三次工业革命中，科学技术发挥着先导性的基础性作用。第一次产业革命导源于力学革命，主要表现为棉纺织技术和蒸汽机技术的改进和发展；第二次产业革命导源于电磁学革命，主要表现为电力的使用及其对全部生产工具的改造；第三次产业革命导源于原子理论、计算机技术、空间技术、材料技术等技术革命，形成了一系列新技术产业群，人类进入大科学时代，特别是信息技术的发展深刻改变了人类的信息方式和生产方式，使得信息要素成为生产力的重要组成部分。当前的第四次产业革命正在塑造数据要素的核心作用，形成“数据×”和“AI+”的乘数效应和聚合效应，从而改变整个社会生产的性质，形成数字化、网络化、智能化新质生产力体系。产业和企业是新质生产力的主要载体。科学技术转化为现实生产力，主要体现在“产业创新”上面，表现为新兴产业、高技术产业、未来产业以及传统产业的协同创新和链式反应。新质生产力并不是完全脱离传统生产力的生产力，而是传统生产力向新质态的不断生成。在大量的传统产业内部，产品创新和工艺创新也会不停地出现，新质生产力不断嫁接、转化、融合，这些也属于新质生产力的范围。同样地，新兴产业、未来产业一方面不能离开传统生产力作为上下游产业的产业关联作用，另一方面在其内部也存在大量的传统生产力要素。新质生产力对传统生产力存在“替代”效应，新的产业会破坏传统产业，使其成为“夕阳产业”,同时兴起“朝阳产业”,这种产业间不停地替代、更新、淘汰的过程，被熊彼特称为“创造性破坏”。传统产业、新兴产业、未来产业构成的产业发展序列是经济发展新陈代谢的过程，既有替代性也有互补性，是辩证否定的过程。在培育和发展战略性新兴产业、未来产业的同时，要高度重视新质生产力对传统产业的改造提升作用。

From scientific discovery, technological invention, and innovation in production factors to the formation of “new quality productive forces,” it is a process in which technological inventions are continuously absorbed by society. The most important link in this “social absorption” is manifested in the commercial innovation of entrepreneurs. In Schumpeter’s theory of innovation, innovation is not “invention,” but the first commercial application of an invention by an entrepreneur, which, through effects such as imitation, diffusion, swarming, and co-opetition, breaks the economic equilibrium and realizes new combinations of production factors. From this perspective, technological invention does not necessarily promote economic development and social progress. The key is the conditions under which technological invention is integrated into the process of social and economic development, which is what we often refer to as “the combination of science and technology with the economy,” “the transformation of science and technology into real productive forces,” and “the integration of scientific and technological innovation with industrial innovation.” As the most important penetrating element driving the development of productive forces, science and technology must be transformed into real productive forces under certain social and economic conditions. At the same time, under certain conditions, the needs of real productive forces development, as well as the bottlenecks or constraints in the development process, also require breakthroughs in science and technology. At this point, the development of science and technology becomes the principal aspect of the contradiction, thus necessitating the solution of key core technology issues.

从科学发现、技术发明、生产要素革新到“新质生产力”形成，是一个科技发明不断被社会所吸收的过程。这种“社会吸收”中最重要的环节表现为企业家的商业创新。在熊彼特的创新理论中，创新并非“发明”,而是企业家对发明创造的首次商业化应用，并通过模仿、扩散、蜂聚、竞合等效应打破经济均衡，实现生产要素的新组合。从这个角度来看，技术发明并不一定能够推动经济发展和社会进步，关键是技术发明在什么条件下融入社会经济发展进程之中，也就是我们经常所讲的“科技与经济的结合”“科技向现实生产力的转化”“科技创新和产业创新融合”。科学技术作为推动生产力发展的最重要的渗透性要素，必须在一定的社会经济条件下才能够转化为现实的生产力；同时，在一定的条件下，现实生产力发展的需要以及发展过程中的瓶颈或制约，也需要科学技术的突破，这个时候科学技术的发展就成为矛盾的主要方面，从而需要解决关键核心技术问题。

II. The Synergistic Role of Government and Market in the Generation of New Quality Productive Forces

二、新质生产力生成中政府与市场的协同作用

The Third Plenary Session of the 20th Central Committee of the CPC pointed out the need to strengthen institutional supply in new fields and new tracks.[2]2 The "new fields and new tracks" (新领域新赛道) refer to emerging areas of economic and technological development, such as the digital economy, green energy, and artificial intelligence, where new industries and business models can be cultivated. Constructing a new type of government-market relationship and forming a mechanism for the efficient synergistic action of the two resource allocation methods are important components of institutional supply. From technological innovation to industrial transformation and upgrading, this is a process of continuous innovation. At different stages of this process, the roles of government and market differ. Based on the generative logic and cyclical process of the development of new quality productive forces, the roles of government and market in the generation process of new quality productive forces can be analyzed separately across three stages: revolutionary breakthroughs in technology, innovative allocation of production factors, and deep transformation and development of industries.

党的二十届三中全会指出，加强新领域新赛道制度供给。[5]构建新型政府和市场关系，形成两种资源配置方式高效协同作用机制，是制度供给的重要内容。从技术创新到产业转型升级是一个连续创新的过程。在这个过程的不同阶段，政府与市场的作用是不同的。根据新质生产力发展的生成逻辑和循环过程，可以分别从技术革命性突破、生产要素创新性配置、产业深度转型发展三个阶段分析新质生产力生成过程中政府和市场的作用。

1. The Role of Government and Market in the Stage of Revolutionary Breakthroughs in Technology

1.技术革命性突破阶段政府与市场的作用

Revolutionary breakthroughs in technology are the starting point for the development of new quality productive forces, and their driving force comes from scientific and technological innovation, especially disruptive technological innovation. Marx believed that science and technology, as "general productive forces," are determined by production, and that the development of science "presupposes a certain level of the material process of production." As a kind of intellectual productive force, "general productive forces" are constrained by the conditions of production and the relations of production. Even when science becomes the task of specialized institutions and is to a certain extent independent of production, it is still determined by the level of development of production and the needs of production. Production provides both the technical needs for the development of science and the material conditions for it. If "technology largely depends on the state of science, then science depends to a much greater extent on the state and needs of technology. Once society has a technical need, this need will push science forward more than ten universities." The development of natural science itself, "like the development of all knowledge related to the production process, is itself carried out on the basis of capitalist production, which for the first time created, to a considerable extent, the material means for natural science to conduct research, observation, and experimentation." Marx's principle on the dialectical relationship between scientific and technological development and social production provides a theoretical foundation for China to leverage the synergistic role of government and market in promoting the development of new quality productive forces. It is necessary to organically unify scientific and technological innovation with production development, and within the interactive relationship between the two, establish the effective role of government in scientific and technological innovation.

技术革命性突破，是新质生产力发展的始点，其动力来源于科技创新，特别是颠覆性技术创新。马克思认为，科学技术作为“一般生产力”,是由生产决定的，科学的发展“以物质生产过程的一定水平为前提”,“一般生产力”作为一种精神生产力受到生产条件和生产关系的制约。即使科学成为专门机构的任务，在一定程度上独立于生产，它依然是由生产发展水平和生产的需要所决定的。生产为科学发展提供了技术上的需要，也为科学发展提供物质条件。如果说，“技术在很大程度上依赖于科学状况，那么，科学则在更大得多的程度上依赖于技术的状况和需要。社会一旦有技术上的需要，这种需要就会比十所大学更能把科学推向前进”。自然科学本身的发展，“也像与生产过程有关的一切知识的发展一样，它本身仍然是在资本主义生产的基础上进行的，这种资本主义生产第一次在相当大的程度上为自然科学创造了进行研究、观察、实验的物质手段”。马克思关于科技发展与社会生产之间辩证关系的原理，为我国发挥政府和市场协同作用促进新质生产力发展提供了理论基础。必须将科技创新与生产发展有机统一起来，在二者的互动关系中，确立政府在科技创新中的有效作用。

In the stage of promoting revolutionary breakthroughs in technology, the role of government is mainly reflected in four aspects: First, based on the state of production and market development, and grounded in national goals and strategic missions, the government formulates scientific and technological development plans, carries out top-level design, provides forward-looking guidance, and leads the direction of scientific and technological development. The Third Plenary Session of the 20th Central Committee of the CPC proposed major measures such as coordinating and strengthening research on key core technologies, strengthening the construction of national strategic scientific and technological forces, and enhancing forward-looking and leading layouts in basic research fields, cross-cutting frontier fields, and key fields. All of these require the government to better play its important role in anticipating the general trend of scientific and technological development in advance and comprehensively implementing the overall planning of science and technology strategy. In the current and upcoming period, China is in a critical period of comprehensively advancing the construction of a strong country and the great rejuvenation of the Chinese nation through Chinese-path modernization. Scientific and technological innovation is the key link in this critical period. The role of government must be elevated to the height of promoting the construction of a strong country and national rejuvenation through technological innovation and institutional breakthroughs, continuously strengthening and scientifically utilizing the advantages of China's new system for mobilizing resources nationwide.[3]3 The "new system for mobilizing resources nationwide" (新型举国体制) refers to a state-led mechanism for concentrating resources to achieve strategic technological breakthroughs, adapted from the earlier planned-economy model to incorporate market mechanisms. Second, the government provides funding and investment support for major scientific and technological projects, focusing on basic research, frontier science and technology, and disruptive technologies, providing basic support conditions for scientific research and development that requires large investment, carries high risks, and has a public welfare nature, and strengthening sustained and precise investment in future industries. Major measures proposed by the Third Plenary Session of the 20th Central Committee of the CPC, such as establishing a growth mechanism for investment in future industries, establishing a long-term mechanism for government investment to support basic, public welfare, and long-term major projects, optimizing the operation and supervision mechanism of major industrial funds, increasing the proportion of science and technology expenditure used for basic research, and expanding the scope of the "lump-sum system"[4]4 The "lump-sum system" (包干制) for research funds is a funding model where researchers are given a fixed total budget with greater autonomy over how it is spent, rather than being subject to detailed line-item accounting. for financial research project funds, are all centered on the strategic goal of building a strong scientific and technological country. They focus on government investment in basic, public welfare, forward-looking, and high-risk fields, and strive to strengthen the construction of institutional mechanisms in key areas of scientific and technological innovation, scientifically planning funding and investment support for the development of new quality productive forces. The history of world scientific and technological development shows that in the era of big science, increasing government investment in science and technology funds in areas where the market cannot or is unwilling to solve problems is an indispensable key factor for scientific and technological progress. Major technological revolutions such as computers and ARPANET were first supported and generated by the U.S. government and national institutions. Third, the government improves institutional conditions and the policy system for promoting scientific and technological progress, consolidates soft infrastructure such as the intellectual property system, market access system, and enterprise exit mechanisms, improves the institutional mechanisms for the smooth circulation and flow of innovation factors such as science and technology, management, information, and data, and provides science and technology policies in areas such as finance, taxation, finance, industry, and regions. The Third Plenary Session of the 20th Central Committee of the CPC proposed optimizing the organizational mechanism for major scientific and technological innovation, establishing an efficient comprehensive management system for intellectual property rights, improving the market access system, deepening the reform of empowering the allocation of job-related scientific and technological achievements, better leveraging the role of government investment funds, improving efficient scientific and technological innovation mechanisms and enhancing the efficiency of achievement transformation, increasing government procurement of independently innovative products, improving the tax system suitable for new business forms, and actively promoting the debut economy[5]5 The "debut economy" (首发经济) refers to an economic model centered on the first launch or debut of new products, services, or business models, often in a specific city or region, to stimulate consumption and innovation. and other strategic measures. These are important institutional innovations in the paradigm of the science and technology system and science and technology policy, with the goal of better maintaining the order of scientific and technological development, stimulating the vitality of scientific and technological innovation, and promoting the transformation of scientific and technological achievements. Establishing such a set of institutional systems and policy paradigms is a key measure, based on the strategic mission and core tasks of the critical period, to construct a comprehensive innovation support system and enhance the overall effectiveness of the national innovation system. It plays an incentivizing and guaranteeing role in shaping new drivers, new advantages, and new patterns of development. Fourth, the government establishes a public service system for scientific and technological innovation and scientific and technological infrastructure, providing social services and basic conditions for scientific and technological innovation, promoting the adaptation of public services for science and technology to the development of science and technology, and providing a system of scientific and technological infrastructure for the public that is public, public welfare, basic, or available for a fee. The Third Plenary Session of the 20th Central Committee of the CPC proposed further opening up national major scientific research infrastructure to private enterprises, establishing a number of industry common technology platforms, building and operating national data infrastructure, developing industrial internet platforms, building safe and efficient financial infrastructure, constructing a planning and standard system for new infrastructure, encouraging and standardizing the development of new R&D institutions, improving the risk diversification mechanism for major scientific and technological research, perfecting the cooperation mechanism for the orderly gradient transfer of industries within the country, and strengthening the independent guarantee of basic conditions for science and technology. These important measures are committed to providing public support and basic conditions for scientific and technological innovation, empowering and enabling social and enterprise scientific and technological innovation, continuously enhancing the vitality of scientific and technological innovation, improving the overall effectiveness of the national innovation system, and compensating for the deficiencies and defects of the market allocation mechanism for innovation resources.

在推动技术革命性突破阶段，政府的作用主要体现在四个方面：一是根据生产和市场发展状况，立足国家目标和战略使命，制定科技发展规划，作好顶层设计，提供前瞻性引导，引领科技发展方向。党的二十届三中全会提出统筹强化关键核心技术攻关，加强国家战略科技力量建设，强化基础研究领域、交叉前沿领域、重点领域前瞻性、引领性布局等重大举措，都需要更好发挥政府超前谋划科技发展大势、全面实施科技战略统筹的重要作用。当前及今后一个时期，我国处于以中国式现代化全面推进强国建设、民族复兴伟业的关键时期，科技创新是关键时期的关键环节，必须将政府作用提升到以技术创新和制度突破促进强国建设、民族复兴的高度来认识，不断强化和科学利用我国新型举国体制的优势。二是提供重大科技项目的资金和投入支持，聚焦基础研究、前沿科技、颠覆性技术，为投入大、风险高、具有公益性的科技研发提供基本支撑条件，加强对未来产业的持续精准投入。党的二十届三中全会提出的建立未来产业投入增长机制，建立政府投资支持基础性、公益性、长远性重大项目建设长效机制，优化重大产业基金运作和监督机制，提高科技支出用于基础研究比重，扩大财政科研项目经费“包干制”范围等重大措施，围绕科技强国战略目标，聚焦于政府对基础性、公益性、前瞻性、高风险领域的投入，着力加强科技创新关键领域的体制机制构建，为新质生产力发展科学谋划了资金和投入支撑。世界科技发展史表明，在大科学时代，政府在市场不能或不愿解决的领域加大科技资金投入，是科技进步必不可少的关键因素，像计算机、阿帕网等重大技术革命都是首先由美国政府和国家机构支撑下产生的。三是完善制度条件和促进科技进步政策体系，夯实知识产权制度、市场准入制度、企业退出机制等软基建，健全科技、管理、信息、数据等创新要素畅通循环流动体制机制，提供财税、金融、产业、区域等科技政策。党的二十届三中全会提出优化重大科技创新组织机制，建立高效的知识产权综合管理体制，完善市场准入制度，深化职务科技成果赋权改革，更好发挥政府投资基金作用，完善高效科技创新机制、提高成果转化效能，加大政府采购自主创新产品力度，完善同新业态相适应的税收制度，积极推进首发经济等战略举措，是对科技体制和科技政策范式的重要制度创新，目标是更好维护科技发展秩序、激发科技创新活力、促进科技成果转化。建立这样一套制度体系和政策范式，是立足关键时期战略使命和核心任务，构建支持全面创新体制机制、提升国家创新体系整体效能的关键举措，对塑造发展新动能新优势新格局具有激励和保障作用。四是建立科技创新公共服务体系和科技基础设施，为科技创新提供社会服务和基础条件，推进科技公共服务与科技发展相适应，为社会提供公共性、公益性、基础性或有偿使用的科技基础设施体系。党的二十届三中全会提出向民营企业进一步开放国家重大科研基础设施，建立一批行业共性技术平台，建设和运营国家数据基础设施，发展产业互联网平台，建设安全高效的金融基础设施，构建新型基础设施规划和标准体系，鼓励和规范发展新型研发机构，健全重大科技攻关风险分散机制，完善产业在国内梯度有序转移的协作机制，加强科技基础条件自主保障等重要举措，致力于为科技创新提供公共支持和基础条件，为社会和企业科技创新赋能赋力赋基，不断增强科技创新活力，提升国家创新体系整体效能，弥补创新资源市场配置机制的不足和缺陷。

In the stage of scientific and technological innovation, government and the market are complementary, and the roles of various forms of ownership are also complementary. While giving full play to the important role of government, it is necessary to further strengthen the principal position of enterprises in scientific and technological innovation, promote the concentration of state-owned capital in forward-looking strategic emerging industries, support capable private enterprises to take the lead in undertaking major national technological research tasks, and strengthen the decisive role of the market in the allocation of innovation factors and innovation resources. In the stage of promoting revolutionary breakthroughs in technology, the role of the market is mainly reflected in three aspects. First, through the market mechanism, it guides the flow of scientific and technological innovation resources and factors, promotes enterprises' independent research and development and active innovation, and advances the construction of enterprises' research and development systems, such as R&D centers, laboratories, and science and technology departments. Enterprise scientific and technological innovation is the result of market competition and also an inherent requirement for the transformation of scientific and technological achievements. Innovation resources and innovation factors flowing and being allocated through the market mechanism often have higher economic efficiency and social benefits. Enterprises are business entities; they are more familiar with what technologies are needed in social production, what resources to invest, how to meet market demands, and what products to create. They can better carry out scientific and technological innovation driven by social demand, and can also directly respond to and make up for innovation needs in production and the market, thereby realizing the transformation of scientific and technological achievements. The Third Plenary Session of the 20th Central Committee of the CPC [6]6 The Third Plenary Session of the 20th Central Committee of the CPC: A major meeting of the Chinese Communist Party held in July 2024, focused on further deepening reform and advancing Chinese modernization. proposed important measures such as improving the institutional arrangements for state-owned enterprises to promote original innovation, establishing and cultivating mechanisms for leading technology enterprises, building mechanisms to promote the development and growth of specialized and new [7]7 Specialized and new (专精特新): A Chinese policy designation for small and medium-sized enterprises that are specialized, refined, distinctive, and innovative, often in niche markets or high-tech fields. small and medium-sized enterprises, optimizing the market access environment for new business forms and new fields, exploring the "implementation of enterprise management" for scientific research public institutions, strengthening the construction of a team of technology managers, and building a science and technology financial system that is compatible with scientific and technological innovation. These measures further unleash the vitality of enterprise scientific and technological innovation from the perspective of scientific and technological system reform and innovation, concentrate efforts to form a more flexible, more effective, and more efficient incentive mechanism for enterprise scientific and technological innovation, and achieve the strategic goal of an enterprise-led, market-oriented scientific and technological innovation ecosystem. Second, through the market mechanism, it promotes scientific and technological cooperation among various innovation entities, smooths the efficient flow of scientific and technological factors, continuously advances enterprise open innovation, and promotes market transactions of intellectual property such as patents. Scientific and technological innovation is open and socialized. A large part of the scientific and technological factors used by enterprises and the corresponding transformation of scientific and technological achievements come from channels such as scientific and technological cooperation with other enterprises and organizations, purchase of technology patents, technology licensing, and acquisition of technology companies. These constitute the source of external technological factors for open innovation. Since the 1980s, the closed innovation paradigm dominated by internal corporate R&D has increasingly evolved into a state where both open and closed innovation paradigms coexist. "The previously largely closed internal environment (companies had to research them before they could use them) has transformed into an open environment (companies can create technologies for both external and internal use, and can obtain research results from both inside and outside)." [8]8 The source of this quotation is not provided in the original text; the bracketed number [8] is retained from the source. Therefore, while vigorously promoting internal corporate R&D, attention must also be paid to constructing market mechanisms for open innovation. The Third Plenary Session of the 20th Central Committee of the CPC proposed major measures such as cultivating a national integrated technology and factor market, establishing efficient, convenient, and secure mechanisms for cross-border data flow, promoting high-level opening up of education, encouraging the establishment of international science and technology organizations in China, improving support and guarantee mechanisms for overseas talent introduction, and exploring the establishment of a high-tech talent immigration system. These measures are precisely aimed at making up for the institutional shortcomings of open innovation, constructing a high-level open innovation environment, consolidating the mechanism for the joint action of the two paradigms of enterprise open and closed scientific and technological innovation, enabling them to work synergistically, complement each other's advantages, and develop together. Third, it establishes a market-oriented, enterprise-led scientific and technological innovation ecosystem, promotes the development of technology-based enterprises, creates new types of R&D organizations, and advances scientific and technological innovation from 0 to 1, from 1 to 10, and from 10 to N. For basic research, as well as research on emerging and future technologies that require large investments and carry high risks, the market mechanism often cannot play an effective role. The government should, from the perspective of national science and technology strategy, target frontier and key areas for forward-looking and leading scientific and technological layout. Applied technology research and competitive innovation fields should primarily be driven by the market mechanism, establishing a market-oriented, enterprise-led scientific and technological innovation ecosystem. Attention must be paid to the docking and complementarity between the fields where government plays a role and those where the market plays a role, effectively leveraging the synergy and interactive coordination between the two, and forming a mutually reinforcing mechanism. The Third Plenary Session of the 20th Central Committee of the CPC proposed measures such as better leveraging the role of government investment funds, optimizing the operation and supervision mechanisms of major industrial funds, establishing an enterprise R&D reserve system, supporting enterprises to actively take the lead or participate in national scientific and technological research tasks, encouraging and guiding universities and research institutes to license scientific and technological achievements to small, medium, and micro enterprises on a "use first, pay later" basis, establishing a separate management system for job-related scientific and technological achievement assets, and improving support policies for long-term capital to invest early, invest small, invest long-term, and invest in hard technology. These measures pay particular attention to the innovation ecosystem for the development and growth of technology-based enterprises, especially emphasizing the role of science and technology finance. These measures focus on building an enterprise-led, market-oriented innovation ecosystem, achieving the goal of fully leveraging the market mechanism in the allocation of creative resources, and forming a systematic, integrated, and focused scientific and technological innovation system.

在科技创新阶段，政府与市场是互补的，各种所有制经济的作用也是互补的。在发挥政府重要作用的同时，必须进一步强化企业科技创新主体地位，推进国有资本向前瞻性战略性新兴产业集中，支持有能力的民营企业牵头承担国家重大技术攻关任务，加强市场在创新要素和创新资源配置中的决定性作用。在推动技术革命性突破阶段，市场的作用主要体现在三个方面：一是通过市场机制引导科技创新资源和要素流动，推动企业自主研发和主动创新，推进企业的研发中心、实验室、科技部门等研发体系建设。企业科技创新是市场竞争的结果，也是科技成果转化的内在要求。创新资源和创新要素通过市场机制进行流动和配置，往往具有更高的经济效率和社会效益。企业是经营主体，对于社会生产中需要什么样的技术、投入什么样的资源、如何满足市场需要、创造什么样的产品等情况更为熟悉，能够更好地开展社会需求推动型的科技创新，也能够直接应对和弥补生产和市场中的创新需要，实现科技成果转化。党的二十届三中全会提出健全国有企业推进原始创新制度安排、建立和培育壮大科技领军企业机制、构建促进专精特新中小企业发展壮大机制、优化新业态新领域市场准入环境、探索科研类事业单位“实行企业化管理”、加强技术经理人队伍建设、构建同科技创新相适应的科技金融体制等重要举措，从科技体制改革创新方面进一步释放企业科技创新活力，聚力形成更加灵活、更加给力、更有效果的企业科技创新激励机制，实现以企业为主导、市场为导向的科技创新生态的战略目标。二是通过市场机制推进各创新主体间的科技合作，畅通科技要素高效流动，不断推进企业开放式创新，促进专利等知识产权市场交易。科技创新是开放性的、社会化的。企业使用的科技要素以及相应的科技成果转化，很大一部分来源于与其他企业和组织的科技合作、技术专利购买、技术授权、对科技公司的收购等渠道，这些构成了开放式创新的外部技术要素来源。自20世纪80年代以来，企业内部科技研发为主导的封闭式创新范式，越来越演变为开放式和封闭式两种创新范式共存的状态，“以前基本封闭的内部环境(公司必须研究出来才能使用它们)已经转变为开放的环境(公司可以在其中创造供外部和内部使用的技术，并且可以内外部获得研究成果)”。[8]因此，在大力推动企业内部研发的同时，也要注重开放式创新的市场机制构建。党的二十届三中全会提出培育全国一体化技术和要素市场、建立高效便利安全的数据跨境流动机制、推进高水平教育开放、鼓励在华设立国际科技组织、完善海外引进人才支持保障机制、探索建立高技术人才移民制度等重大举措，正是着眼于弥补开放创新制度短板，构建高水平开放创新环境，夯实企业开放式和封闭式科技创新的两种范式共同作用机制，使其协同发力、优势互补、共同发展。三是建立以市场为导向、企业为主体的科技创新生态，推进科技型企业发展，创造新型研发组织，推进科技创新从0到1,从1到10,从10到N。基础研究以及投入大、风险高的新兴技术和未来技术研究，市场机制往往不能发挥有效作用，政府应从国家科技战略的角度，瞄准前沿领域、重点领域进行前瞻性、引领性科技布局。应用技术研究和竞争性创新领域应主要由市场机制发挥作用，建立以市场为导向、企业为创新主体的科技创新生态。要注重政府作用的领域与市场作用的领域的对接和互补，有效发挥二者之间的契合效应和协同互动作用，形成相互促进的作用机制。党的二十届三中全会提出更好发挥政府投资基金作用，优化重大产业基金运作和监督机制，建立企业研发准备金制度，支持企业主动牵头或参与国家科技攻关任务，鼓励和引导高校、科研院所按照先使用后付费方式把科技成果许可给中小微企业使用，建立职务科技成果资产单列管理制度，完善长期资本投早、投小、投长期、投硬科技的支持政策等重要举措，对科技型企业发展成长的创新生态尤为关注，特别是重视科技金融的作用，这些举措聚焦构建以企业为主导、市场为导向的创新生态，达到充分发挥市场机制在创造资源配置中的作用，形成系统集成、重点突出的科技创新体制。

2. The Role of Government and Market in the Stage of Innovative Allocation of Production Factors

2.生产要素创新性配置阶段政府与市场的作用

The innovative allocation of production factors is an inevitable requirement of the commercialization stage of scientific and technological innovation. It is a process of promoting the application and social absorption of technology, that is, the stage where science and technology are combined with the economy. This stage is a key link in the transformation of technology into industry, and a "perilous leap" [9]9 Perilous leap (惊险跳跃): A reference to Marx's description of the sale of commodities (the realization of value) as a "perilous leap" in *Capital*, Volume 1. combining scientific and technological innovation with industrial innovation. Marx and Engels attached great importance to the transformation of scientific and technological achievements, believing that the transformation of "general productive forces" into direct productive forces is constrained by economic relations. "In the 18th century, the progress and discoveries in mathematics, mechanics, and chemistry reached almost the same level in England, France, Sweden, and Germany. The same was true for inventions, for example in France. However, at that time, their capitalist application occurred only in England, because only there had economic relations developed to the point where capital could make use of scientific progress. (At that time, especially England's agricultural relations and colonies played a decisive role.)" [10]10 The source of this quotation is not provided in the original text; the bracketed number [8] is retained from the source. This is because the technological combination of productive forces factors is constrained by the form of social combination. Under market economy conditions, the transformation of science into technology, and the commercialization of technology or inventions, must conform to economic rationality. Technological rationality is constrained by the conditions of economic rationality. "Every method of production used at a given time is subject to economic appropriateness. These methods contain not only ideas of economic content but also ideas of material content." [11]11 The source of this quotation is not provided in the original text; the bracketed number [8] is retained from the source. A technology may have appeared very early, but it can only be transformed into actual productive forces when it is needed by society. That is to say, technological progress and the application of that technology are not necessarily consistent in terms of whether they can generate profit. It is possible that a technology is already achievable technologically, but because it cannot generate profit or has a low profit rate, its social application time will be delayed. Only when economic and social conditions are suitable for obtaining more profit will technology be transformed into direct productive forces.

生产要素创新型配置，是科技创新商业化阶段的必然要求，是推进科技应用和社会吸收的过程，也就是科技与经济相结合的阶段。这一阶段是科技向产业转化的关键环节，是科技创新与产业创新相结合的“惊险跳跃”。马克思、恩格斯高度重视科技成果的转化，认为“一般生产力”向直接生产力的转化受经济关系的制约。“18世纪，数学、力学、化学领域的进步和发现，无论是在英国、法国、瑞典、德国，几乎达到了相同的程度。发明也是如此，例如在法国就是这样。然而，在当时他们的资本主义应用却只发生在英国，因为只有在那里，经济关系才发展到使资本有可能利用科学进步的程度。(当时，特别是英国的农业关系和殖民地起了决定性的作用。)”这是因为，生产力要素的技术结合会受到社会结合形式的制约。在市场经济条件下，科学向技术的转化、技术或发明的商业化，必须符合经济上的合理性，技术上的合理性受经济合理性条件的制约。“在一定的时候所使用的每一种生产方法，都在服从经济上的恰当性。这些方法不仅包含着经济内容的想法，而且也包含有物质内容的想法。”一种技术可能在很早的时候已经出现，但只有它在被社会所需要的时候才能够转化成现实的生产力。也就是说，技术上的进步和这种技术的应用能否带来利润并不是一致的，有可能技术上已经能够实现，但由于这种技术不能够带来利润或者利润率较低，就会推迟这种技术的社会应用时间，只有当经济社会条件适合于更多的利润获取时，技术才转化为直接的生产力。

In the innovative allocation of factors, the government’s main role is to provide forward-looking planning guidance and scientific policy support. First, it must establish an institutional framework for the development of new types of production factors, promote the construction of a unified national market for new factors, and smooth the channels for factor mobility. Second, it must advance the construction of a planning system that integrates scientific and technological planning, industrial planning, and talent development planning, coordinating the promotion of scientific and technological innovation, industrial innovation, and the cultivation of innovative talent, thereby forming a new pattern of integrated and synergistic development among education, science and technology, and talent. Third, it must focus on solving problems that the market cannot solve, such as policies, institutions, public services, infrastructure, and the organization and guidance of major projects for factor allocation. Through top-level design, institutional setting, strategic planning, macro-control, and micro-regulation, it must prospectively guide the efficient allocation of new types of production factors, forming a high-quality innovation ecosystem.

要素创新资源配置中政府的主要作用是超前规划引导、科学政策支持。一是要为新型生产要素的发展建立制度框架，促进新要素全国一体化大市场建设，畅通要素流动渠道。二是要推进科技规划、产业规划、人才发展规划三位一体的规划体系建设，协同推进科技创新、产业发展和创新人才培育，形成教育、科技、人才“三位一体”协同融合发展新格局。三是着力于解决市场解决不了的问题，如要素配置的政策、制度、公共服务、基础设施以及重大项目组织引导等，通过顶层设计、制度设定、战略规划、宏观调控和微观规制等方式，前瞻性地引导新型生产要素高效配置，形成高质量创新生态。

In the allocation of innovation resources, the market’s decisive role must be effectively brought into play. Promoting industrial innovation through scientific and technological innovation, advancing the integration of science and technology with the economy, and achieving the efficient transformation of scientific and technological productive forces into actual productive forces are key links in developing new quality productive forces and play a pivotal role in their development. The journey from scientific discovery to the laboratory, and then to engineering design and commercial application, is a long process that contains the well-known “valley of death.” Crossing the “valley of death” depends crucially on the market. The innovation economist Schumpeter defined “innovation” as the first commercial application of a scientific and technological achievement, precisely focusing on this issue. The difference between an engineer and an entrepreneur lies in the fact that the engineer thinks about the perfection of technology and craftsmanship, while the entrepreneur focuses on the market profitability of the invention. In a market economy, the logic of science and technology is subordinate to the logic of the market; the market largely determines the direction of scientific and technological innovation and the efficiency of its transformation. Innovation is the source of vitality. To stimulate the endogenous driving force and innovative vitality of the whole society, great importance must be attached to cultivating entrepreneurship. “Our comprehensive deepening of reform is precisely aimed at unleashing the vitality inherent in the market. Market vitality comes from people, especially from entrepreneurs and entrepreneurship. To stimulate market vitality, we must delegate the powers that should be delegated to the appropriate extent, create the environment that should be created, and formulate the rules that should be formulated.” [n12] Scientific and technological entrepreneurs play an important subjective role in the transformation of scientific and technological achievements. Great importance must be attached to creating an environment conducive to the growth of scientific and technological entrepreneurs, forming institutional conditions favorable to the growth of outstanding scientific and technological entrepreneurs.

创新资源配置要有效发挥市场的决定性作用。以科技创新推动产业创新，推进科技与经济的结合，实现科技生产力向现实生产力高效转化，是发展新质生产力的关键环节，在新质生产力发展中具有举足轻重的作用。从科学发现到实验室、再到工程设计和商业化应用，是一个漫长的过程，这个过程存在众所周知的“死亡谷”。跨越“死亡谷”,关键靠市场。创新经济学家熊彼特将“创新”界定为科技成果的首次商业化应用，正是聚焦于此问题，工程师和企业家的差异就在于工程师思考的是技术和工艺的完美，而企业家则关注发明的市场盈利问题。在市场经济中，科技的逻辑服从于市场的逻辑，市场在很大程度上决定着科技创新的方向以及转化的效率。创新是活力之源。激发全社会内生动力和创新活力，必须高度重视企业家精神的培育。“我们全面深化改革，就是要激发市场蕴藏的活力。市场活力来自人，特别是来自企业家，来自企业家精神。激发市场活力，就是要把该放的权放到位，该营造的环境营造好，该制定的规则制定好。”科技企业家在科技成果转化中起着重要的主体性作用，要高度重视科技企业家成长环境的营造，形成有利于优秀科技企业家成长的制度条件。

In the stage of innovative allocation of production factors, greater emphasis must be placed on bringing the market’s decisive role into play, promoting the flow of various advanced production factors towards innovation fields and their concentration on developing new quality productive forces. First, importance must be attached to the supporting role of finance in the transformation of scientific and technological achievements. Encourage and regulate the role of financial capital such as angel investment, venture capital, and private equity investment in promoting innovation, cultivate and strengthen patient capital, and form a mechanism for patient capital to promote the development of new quality productive forces. Second, establish and improve the income distribution mechanism for the transformation of scientific and technological achievements, allow scientific and technological personnel greater autonomy in the distribution of income from the transformation of scientific and technological achievements, leverage the positive role of interest incentives, and continuously enhance the innovation vitality of society. Third, leverage the role of the state-owned economy in industrial innovation, and establish and cultivate leading private scientific and technological enterprises. Promote the concentration of state-owned capital in forward-looking and strategic emerging industries, and improve the institutional arrangements for state-owned enterprises to advance original innovation. Strengthen the deep integration of industry, academia, and research led by enterprises, cultivate gazelle enterprises and unicorn enterprises, and promote the development and growth of specialized, refined, distinctive, and innovative small and medium-sized enterprises.

在生产要素创新性配置阶段，要更加重视发挥市场的决定性作用，促进各类先进生产要素向创新领域流动、向发展新质生产力聚集。一是要重视金融对科技成果转化的支撑作用。鼓励和规范天使投资、风险投资、私募股权投资等金融资本对创新的推动作用，培育和壮大耐心资本，推动形成耐心资本促进新质生产力发展的机制。二是要建立健全科技成果转化收益分配机制，允许科技人员在科技成果转化收益分配上有更大自主权，发挥利益激励的正向作用，不断提升社会的创新活力。三是要发挥国有经济在产业创新中的作用，建立培育壮大民营科技领军企业。推动国有资本向前瞻性战略性新兴产业集中，健全国有企业推进原始创新制度安排。加强企业主导的产学研深度融合，培育瞪羚企业、独角兽企业，促进专精特新中小企业发展壮大。

3. The Role of Government and Market in the Stage of Deep Industrial Transformation and Development

3.产业深度转型发展阶段政府与市场的作用

Deep industrial transformation and development is the result of the transformation of scientific and technological innovation into industrial innovation. Marx, in *Capital*, profoundly analyzed the logic of the transformation from manufacture to large-scale machine industry. This transformation exhibits three regularities: First, new industries are gestated and developed from old industries. “The machine, which is the starting point of the industrial revolution, replaces the worker who handles a single tool with a mechanism that operates many identical or similar tools simultaneously, driven by a single motive force, whatever its form.” [n13] This suggests that in the process of developing new quality productive forces and promoting industrial transformation, we must pay attention to the technological connections and social linkages between traditional industries, emerging industries, and future industries. Second, the transformation to large-scale machine industry is a process in which a series of new industries are continuously created, driving a qualitative change in industrial forms. “A change in the mode of production in one sphere of industry causes a change in the mode of production in other spheres. … This applies first to those branches of industry which are isolated by the social division of labor, each producing an independent commodity, but which are nevertheless closely interconnected as phases of a total process.” [n14] This indicates an inherent correlation between the innovation chain and the industrial chain, meaning that the development of new quality productive forces is a chain reaction process. Third, industrial innovation implies changes in the relationships among workers in the direct production process, the relationship between capital and labor, and the relationship between humans and machines. “The machine now intrudes into this or that partial process of manufacture. In this way, the solid crystallization of the manufacture organization, which arose from the old division of labor, is dissolved and makes way for constant change. Furthermore, the composition of the collective worker, i.e., the combined working personnel, also undergoes a fundamental revolution.” [n15] This indicates that in the process of industrializing new quality productive forces, social production relations will undergo major changes. It is necessary to construct new production relations compatible with them, promoting a better adaptation between the socio-economic system and the development of social productive forces.

产业深度转型发展是科技创新转化为产业创新的结果。马克思在《资本论》中深刻分析了从工场手工业向机器大工业转型发展的逻辑。这种转型发展表现出三个方面的规律：一是新产业是从旧产业中孕育发展而来的。“作为工业革命起点的机器，是用这样一个机构代替只使用一个工具的工人，这个机构用许多同样的或同种的工具一起作业，由一个单一的动力来推动，而不管这个动力具有什么形式。”这提示我们在发展新质生产力、推动产业转型发展的过程中，要重视传统产业与新兴产业和未来产业之间的技术结合和社会联系。二是向机器大工业转型发展是一系列新产业不断创生、推动产业形态质变的过程。“一个工业部门生产方式的变革，会引起其他部门生产方式的变革。……这首先涉及因社会分工而孤立起来以致各自生产一种独立的商品、但又作为一个总过程的各阶段而紧密联系在一起的那些工业部门。”这表明创新链和产业链之间具有内在关联性，即新质生产力的发展是一个链式反应过程。三是产业创新意味着直接生产过程中劳动者之间的关系、资本与劳动之间的关系、人与机器之间的关系的改变。“机器时而挤进工场手工业的这个局部过程，时而又挤进那个局部过程。这样一来，从旧的分工中产生的工场手工业组织的坚固结晶就发生溶解，并给不断变化腾出位置。此外，总体工人即结合工人的构成也发生了根本的变革。”这表明在新质生产力产业化的过程中社会生产关系将发生重大变化，要构建与之相适应的新型生产关系，促进社会经济制度与社会生产力发展更好适应。

The role of the government in the stage of deep industrial transformation and development is, first, to promote and facilitate the upgrading and transformation of traditional industries, continuously promote the development of emerging and future industries, optimize and adjust the industrial structure, and form a gradient model for the development of traditional, emerging, and future industries. Second, to establish and improve the social response system and mechanism for “creative destruction,” establish a social safety net, and effectively address the impacts of industrial transformation and upgrading on employment structure, education structure, and population structure. Third, to adapt to industrial development by reforming social production relations, making production relations meet the needs of developing new quality productive forces. Establish and improve mechanisms for anti-monopoly and unfair competition, adjust labor relations, income distribution, and wealth accumulation mechanisms, and strengthen the supply of institutions for new industries and new fields.

产业深度转型发展阶段政府的作用，一是推进和促进传统产业的升级改造，不断促进新兴产业和未来产业发展，优化和调整产业结构，形成传统产业、新兴产业、未来产业发展的梯度模式；二是建立健全“创造性破坏”的社会应对体制机制，建立社会安全网，有效应对产业转型升级对就业结构、教育结构、人口结构所带来的冲击；三是适应产业发展改革社会生产关系，使生产关系适应新质生产力发展的需要。建立健全反垄断和不当竞争机制，调整劳动关系和收入分配、财富积累机制，加强对新产业新领域的制度供给。

The role of the market in the stage of deep industrial transformation and development: First, fully leverage market competition to promote the transformation and substitution of old and new industries, old and new business forms, and old and new models. Rely on new quality productive forces to bring into play the synergistic and agglomeration effects of industrial development, and promote the continuous development and growth of new industrial structures. Second, fully leverage the market’s decisive role in resource allocation, enabling the full flow and efficient use of various production factors, achieving optimal efficiency and maximum benefit in resource allocation. Third, establish a government-guided, market-led mechanism for industrial transformation and development, fully leverage the market’s role in industrial layout, industrial upgrading, and industrial transfer, strengthen government industrial policy guidance, continuously enhance the leading position of advantageous industries, and promote the transformation and upgrading of traditional industries.

产业深度转型发展阶段市场的作用：一是充分发挥市场竞争作用，推进新旧产业、新旧业态、新旧模式的转化和替代，依托新质生产力发挥产业发展协同效应和集聚效应，推动新质态的产业结构不断发展壮大；二是充分发挥市场在资源配置中的决定性作用，使各种生产要素充分流动、高效使用，实现资源配置效率最优化和效益最大化；三是建立政府引导、市场主导型的产业转型发展机制，充分发挥市场在产业布局、产业升级、产业转移中的作用，强化政府产业政策引导，不断提升优势产业领先地位，推动传统产业转型升级。

The Third Plenary Session of the 20th Central Committee of the Communist Party of China [n16] systematically planned the deep transformation and upgrading of industries. For strategic industries, especially emerging industries, it proposed promoting their healthy and orderly development from two aspects: development policies and governance systems, and promoting the concentration of state-owned capital in forward-looking and strategic emerging industries. For future industries, it proposed establishing a mechanism for increasing investment. For traditional industries, it proposed two main directions: using national standards to guide optimization and upgrading, and using digital-intelligent technology and green technology for transformation and improvement. At the same time, it also emphasized strengthening institutional constraints in areas such as environmental protection and safety. These strategic measures are mainly aimed at top-level design of major issues in the deep transformation and upgrading of industries from the perspective of leveraging the government’s role, while also emphasizing the market’s leading role in industrial innovation.

党的二十届三中全会对产业深度转型升级进行了系统规划。对战略性产业特别是新兴产业，提出从发展政策和治理体系两个方面推动其健康有序发展，推动国有资本向前瞻性战略性新兴产业集中。对未来产业，提出建立投入增长机制；对传统产业提出用国家标准引领优化升级，用数智技术、绿色技术改造提升两大主攻方向。同时，还强调了要强化环保、安全等制度约束。这些战略举措主要是从发挥政府作用的角度对产业深度转型升级中的重大问题进行顶层设计，同时也强调了产业创新中市场的主导作用。

III. Current Challenges and Problems in Doing a Good Job of the “Big Article on Innovation”

三、当前做好“创新大文章”面临的挑战和问题

Innovation is multi-dimensional and multi-faceted; it is necessary to promote the organic coordination of innovation in all aspects, enhance the systemic, holistic, and synergistic nature of various types of innovation, and form a "comprehensive innovation" institutional system that supports the development of new quality productive forces. General Secretary Xi Jinping pointed out: "The salient feature of new quality productive forces is innovation, which includes innovation at the level of technology and business models, as well as innovation at the level of management and institutions. We must continue to do a good job on the big article of innovation and promote the accelerated development of new quality productive forces." [2]2 The "new fields and new tracks" (新领域新赛道) refer to emerging areas of economic and technological development, such as the digital economy, green energy, and artificial intelligence, where new industries and business models can be cultivated.[17]17 Xi Jinping, "Accelerating the Development of New Quality Productive Forces," *Qiushi* Journal, 2024, no. 6. Doing a good job on the "big article of innovation" mainly includes five aspects: scientific and technological innovation, industrial innovation, innovation in development models, innovation in systems and mechanisms, and innovation in the talent work mechanism. The main problems currently constraining the development of new quality productive forces in China come, on the one hand, from insufficient innovation in key core technologies, low efficiency in the transformation of scientific and technological innovation into industrial innovation, and motivational obstacles to innovation in development models; on the other hand, they come from an insufficient market-led innovation mechanism, weak adaptability of the science and technology system, and an imperfect talent work mechanism. There is an urgent need to advance supply-side structural reform in science and technology and institutions, further stimulate innovation vitality, and promote the efficient allocation of innovation resources.

创新是多维度和多方面的，必须推动各方面创新的有机协调，增强各类创新的系统性、整体性、协同性，形成支撑新质生产力发展的“全面创新”制度体系。习近平总书记指出：“新质生产力的显著特点是创新，既包括技术和业态模式层面的创新，也包括管理和制度层面的创新。必须继续做好创新这篇大文章，推动新质生产力加快发展。”[2]做好“创新大文章”主要包括科技创新、产业创新、发展方式创新、体制机制创新、人才工作机制创新五个方面。当前制约我国新质生产力发展的主要问题，一方面来自关键核心科技创新不足、科技创新向产业创新转化效率不高、发展方式创新存在动力障碍；另一方面来自市场主导创新机制不充分、科技体制适应性不强、人才工作机制不完善，亟需推进科技和制度的供给侧结构性改革，进一步激发创新活力，推进创新资源高效配置。

Insufficient capacity for innovation in key core technologies, especially original and disruptive technological innovation, is a key link constraining the development of new quality productive forces. To advance supply-side structural reform in the field of scientific and technological innovation, the primary task is to strengthen top-level design, clarify the direction and trends of world scientific development, determine China's advantageous technologies and strategic industries according to local conditions, and identify the key core technologies that constrain the development of new quality productive forces. Based on the different requirements and characteristics of these technologies and industries, the scope of the roles of government and market should be determined. For bottleneck key core technologies, what is lacking is not the market or transformation, but source supply. It is necessary to leverage the advantages of the new nationwide system for mobilizing resources [18]18 The new nationwide system for mobilizing resources (新型举国体制) refers to a state-led mechanism for concentrating resources on strategic technological breakthroughs, updated from the planned-economy-era system to incorporate market elements., pool national strategic scientific and technological forces, have the government lead resource investment, achieve rapid breakthroughs and efficient solutions, and quickly break free from the constraints that key core technologies being controlled by others impose on China's development of new quality productive forces. Public and public-interest knowledge innovation and basic research are the theoretical foundation and ideological source of scientific and technological innovation and industrial innovation, playing a fundamental supporting role in developing new quality productive forces. Due to their characteristics as public goods, it is difficult to have clear economic benefits; the government needs to increase investment to promote basic research and provide a high-quality supply of basic knowledge. For large-scale, long-cycle, high-risk major scientific research projects, market investment is insufficient; the government should take the lead, introduce private capital, innovate organizational models, and promote cooperative research and development between the government and enterprises. For market-oriented scientific and technological research and development projects, the market should take the lead, with strengthened policy support. The government should establish and improve public science and technology infrastructure, provide public goods for research and development at all levels and of all types, and continuously optimize the institutional environment for scientific and technological innovation.

关键核心技术特别是原创性、颠覆性技术创新发展能力不足是制约新质生产力发展的关键环节。推进科技创新领域的供给侧结构性改革，首要的任务是加强顶层设计，明确世界科学发展方向和趋势，因地制宜确定我国的优势技术和战略产业，划出制约新质生产力发展的关键核心技术。根据这些技术和产业发展的不同要求和特征，确定政府和市场的作用范围。对于卡脖子的关键核心技术，缺少的不是市场和转化，而是源头供给，要发挥新型举国体制优势，聚合国家战略科技力量，由政府主导资源投入，快速突破、高效解决，尽快破除关键核心技术受制于人对我国发展新质生产力的束缚。公共性、公益性知识创新和基础研究是科技创新和产业创新的理论基础和思想源头，对发展新质生产力起着基础支撑作用，由于其公共产品的特性，很难有明确的经济效益，需政府加大投入推动基础研究，提供高质量的基础知识供给。对于规模大、周期长、风险高的重大科研项目，市场投入不足，要以政府为主导，引入民间资本，创新组织模式，促进政府与企业的合作研发。对于以市场为导向的科技研发项目，要以市场为主导，加强政策支持。政府要建立和完善公共性科技基础设施，为各级各类研发提供公共产品，不断优化科技创新的制度环境。

The low efficiency of transforming scientific and technological innovation into industrial innovation is a worldwide problem. The key reason for the "two skins" of science and technology and the economy is the poor market-oriented mechanism for research and development. Forming an enterprise-led, market-oriented allocation model for innovation resources is the solution path. What the government should provide are public goods for research and development, public services, intellectual property protection and policy incentive mechanisms, as well as research and development problems that the market cannot solve or cannot solve well. Apart from this, research and development innovation should be left to the market, with enterprises deciding the allocation of innovation resources. According to the 2022 and 2023 "China Patent Survey Reports" released by the China National Intellectual Property Administration, the industrialization rate of valid invention patents in China was 36.7% and 39.6% respectively; in 2022, the industrialization rate of invention patents in universities was 3.9% [19]19 China National Intellectual Property Administration, *2022 China Patent Survey Report* and *2023 China Patent Survey Report*.. Compared with developed countries, there is still significant room for improvement. The "2022 Annual Report on the Transformation of Scientific and Technological Achievements in China" shows that in 2022, Chinese enterprises contributed 93.7% of the country's technology output and 82.8% of technology absorption [20]20 China Science and Technology Exchange Center, *2022 Annual Report on the Transformation of Scientific and Technological Achievements in China*.. This fully demonstrates that the transformation of scientific and technological achievements outside of enterprises in China is insufficient, and the connection between other research institutions and the market is not strong. Therefore, it is necessary to strengthen the market orientation of the transformation of scientific and technological innovation achievements, enhance the market adaptability of non-enterprise scientific and technological innovation, open up the connection channels between non-enterprise research and development departments and enterprises and the market, and promote the cycle between scientific and technological innovation and industrial innovation.

科技创新向产业创新转化效率不高是世界性难题。科技与经济两张皮，关键原因是研发的市场导向机制不畅，形成以企业为主导、面向市场的创新资源配置方式是解决路径。政府要提供的是研发的公共产品、公共服务，产权保护和政策激励机制，以及市场解决不了和解决不好的研发问题，除此之外的研发创新应该交给市场，由企业来决定创新资源的配置。根据国家知识产权局发布的2022年和2023年《中国专利调查报告》,我国有效发明专利产业化率分别为36.7%和39.6%,2022年高校发明专利产业化率为3.9%,①与发达国家相比，还有较大提升空间。《中国科技成果转化年度报告2022》显示，2022年我国企业贡献了全国93.7%的技术输出和82.8%的技术吸纳②。这充分表明，我国企业之外的科技成果转化不足，其他科研机构与市场的联结性不强。因此，要加强科技创新成果转化的市场化导向，提升非企业科技创新的市场适应性，打通非企业研发部门与企业和市场之间的连接通道，促进科技创新与产业创新之间的循环。

New quality productive forces are themselves green productive forces; developing new quality productive forces must advance innovation in development models. The essence of innovation in development models is to promote the transformation of high-input, high-energy-consumption, high-emission development models towards high-tech, high-efficiency, high-quality development models. Green scientific and technological innovation, green industry, and green lifestyles are the three key links in building a green, low-carbon, circular economic system. Among them, green scientific and technological innovation is the source of innovation in development models, green industry is the core of innovation in development models, and green lifestyles are the terminal of innovation in development models. Currently, the inertial factors of traditional development models in China remain strong; traditional industries are large in scale, and the green transformation of development models faces many constraints, long cycles, and strong obstacles. The government must continuously optimize the economic policy toolbox supporting green and low-carbon development, guide enterprises towards green production, and develop green and low-carbon industries and supply chains. Through government regulation, support, and control measures, it should stimulate the vitality of green technology innovation, form a market-oriented mechanism for greening, and promote the transformation of green technologies into green productive forces.

新质生产力本身就是绿色生产力，发展新质生产力必须推进发展方式创新。发展方式创新的实质是推进高投入、高耗能、高排放的发展方式向高科技、高效能、高质量的发展方式转型。绿色科技创新、产业绿色化、生活方式绿色化是构建绿色低碳循环经济体系的三个关键环节。其中，绿色科技创新是发展方式创新的源头，产业绿色化是发展方式创新的核心，生活方式绿色化是发展方式创新的终端。当前我国传统发展方式的惯性因素依然较强，传统产业规模大，发展方式绿色转型的约束多、周期长、障碍强。政府要持续优化支持绿色低碳发展的经济政策工具箱，引导企业生产绿色化，发展绿色低碳产业和供应链。通过政府调节、支持、规制等手段，激发绿色技术创新活力，形成绿色化的市场导向机制，推进绿色技术向绿色生产力转化。

Promoting the market-led allocation of innovation resources, with the government and market working in synergy, is key to building an economic system compatible with the development of new quality productive forces. The innovation model of Silicon Valley in the United States involves the interaction and complementary synergy between government project investment and the market; neither government action alone nor market mechanisms alone can solve the scientific and technological innovation problems of the era of big science. Promoting the transformation of national scientific and technological achievements to the market in various forms, as well as independent enterprise research and development, are two main development paths. Disruptive technologies such as electronic computers and the internet are the result of U.S. government and military-industrial complex investments being transformed into civilian use, while in the marketization process, independent enterprise research and development has driven the continuous innovation and commercial application of electronic computer and internet technologies. In this process, university talent cultivation and research and development transformation also play a key role. This innovation system is formed under the efficient synergy of government and market. In China, the effective coordination mechanisms of the national innovation system, regional innovation systems, and innovation consortia are imperfect; the efficiency of transforming the achievements of some government-invested major scientific research projects is low; and the market-led innovation mechanism is insufficient. This is mainly manifested in unclear relationships between government and market in the allocation of innovation resources, the administrative nature of the regional innovation division of labor mechanism, and imperfect venture capital mechanisms supporting innovation.

推动创新资源配置以市场为主导、政府与市场协同发力是构建与新质生产力发展相适应的经济体制的关键。美国硅谷的创新模式是政府的项目投资与市场相互作用、协同互补，单纯的政府作用和市场机制都无法解决大科学时代的科技创新问题。推动国家科技成果以多种形式向市场转化以及企业自主科技研发是两条主要的发展路径。电子计算机、互联网等颠覆性技术是美国政府和军工复合体投资转化为民用的结果，而在市场化过程中企业的自主研发推动了电子计算机、互联网技术的不断革新和商业化应用。在此过程中，大学的人才培养和研发转化也发挥着关键作用。这种创新体系是政府和市场高效协同作用下形成的。我国国家创新体系、区域创新体系、创新联合体等的有效协同机制不完善，一些政府投资的重大科研项目成果落地转化效率不高，市场主导的创新机制不充分。主要表现在，创新资源配置政府与市场关系不清晰，区域创新分工机制行政化，支持创新的风投机制不完善等方面。

Reform of the science and technology system is an important area of comprehensively deepening reform and a crucial support for developing new quality productive forces. The science and technology system is mainly a system composed of scientific research institutions and science and technology institutions. The goal of reforming the science and technology system is to establish a basic system compatible with the development of new quality productive forces and supporting comprehensive innovation, including new types of scientific research institutions, a system for intellectual property rights over scientific and technological achievements, a mechanism for evaluating science and technology, a system for transferring scientific and technological achievements into shares, and a system for science and technology finance. China's science and technology system faces problems such as insufficient investment in basic research, inadequate connection between basic research and applied research, imperfect mechanisms for evaluating and incentivizing science and technology and for the intellectual property market, a lack of an effective science and technology financial market, the administrative nature of scientific and technological institutions, and weak cohesion of the national innovation system. To a large extent, these problems are related to the synergy of the relationship between government and market. It is necessary to further promote innovation in the systems and mechanisms of science and technology, comprehensively deepen the reform of the science and technology system, and provide solid institutional support for the development of new quality productive forces.

科技体制改革是全面深化改革的重要领域，是发展新质生产力的重要支撑。科技体制主要是由科研机构和科技制度构成的系统。科技体制改革的目标，是建立与新质生产力发展相适应、支持全面创新的基础制度，包括新型科研机构、科技成果知识产权制度、科技评价机制、科技成果转让入股制度、科技金融制度等。我国科技体制存在基础研究投入不足、基础研究与应用研究衔接不够，科技评价激励机制、知识产权市场机制不完善，缺乏有效科技金融市场，科技机构行政化，国家创新体系聚合力不强等问题，这些问题在很大程度上都与政府与市场关系的协同性有关，需要进一步推动科技体制机制创新，全面深化科技体制改革，为发展新质生产力提供坚实制度支撑。

Talent is the primary resource, and deepening innovation in the talent work mechanism is an important guarantee for developing new quality productive forces. People are the most active factor in productive forces. From the perspective of world history, scientific and technological powers are all talent powers, and the world’s science and technology centers are also talent centers. To develop new quality productive forces, it is necessary to form an institutional guarantee for talent development, establish a high-quality talent cultivation system, and smooth the virtuous cycle of education, science and technology, and talent. China’s talent cultivation mechanism still lags behind the new trends in world scientific and technological development; the mechanisms for talent introduction, cultivation, and mobility are not well-established, and there is a shortage of first-class strategic scientists, scientific and technological entrepreneurs, outstanding engineers, master craftsmen, and other strategic human resources and urgently needed talent. Deepening innovation in the talent work mechanism requires both promoting innovation in the talent system and creating a favorable working atmosphere, forming an innovative environment where talent can stand out and fully utilize their abilities.

人才是第一资源，深化人才工作机制创新是发展新质生产力的重要保障。人是生产力中最活跃的要素。从世界历史来看，科技强国都是人才强国，世界科技中心也是人才中心。发展新质生产力，必须形成人才发展的制度保障，建立高质量人才培养体系，畅通教育、科技、人才的良性循环。我国人才培养机制与世界科技发展新趋势尚有差距，人才引进、培养、流动机制不健全，缺乏一流的战略科学家、科技企业家、卓越工程师、大国工匠等战略性人力资源和急需人才，深化人才工作机制创新既要推动人才制度创新，也要营造良好工作氛围，形成人才脱颖而出、人尽其才的创新环境。

IV. Key Points for Leveraging the Roles of Government and Market to Develop New Quality Productive Forces According to Local Conditions

四、发挥政府和市场作用因地制宜发展新质生产力的着力点

The Third Plenary Session of the 20th Central Committee of the CPC proposed improving the systems and mechanisms for developing new quality productive forces according to local conditions.[21]21 The Third Plenary Session of the 20th Central Committee of the CPC, held in July 2024, focused on further deepening reform comprehensively to advance Chinese modernization. The quoted phrase is from the official communiqué of the session. This sets new requirements for the role of government and new stipulations for the role of the market. Generally speaking, the government, as the “visible hand,” has three main roles in developing new quality productive forces: first, solving problems that the market, as the “invisible hand,” cannot solve or cannot solve well; second, remedying “market failures” and correcting “market problems”; third, providing guarantees and a favorable environment for the operation of an effective market, including strategic planning, top-level design, institutional arrangements, public services, infrastructure, policy measures, and so on. The market, as the “invisible hand,” operates efficiently, circulates smoothly, and upgrades continuously within a certain institutional framework, achieving optimal resource allocation efficiency and maximum benefits. The decisive role of the market in resource allocation focuses on improving efficiency, stimulating vitality, and generating momentum, while better leveraging the government’s role focuses on observing the general trend, planning the overall situation, and grasping major affairs. The goal of leveraging the synergistic role of the “two hands” of government and market is to promote the development of new quality productive forces according to the time, place, and circumstances, to use new quality productive forces to drive high-quality development, to better stimulate the endogenous driving force and innovation vitality of the whole society, and to continuously shape new drivers of development and new advantages. The current key points for leveraging the efficient synergistic role of government and market and developing new quality productive forces according to local conditions are as follows:

党的二十届三中全会提出，健全因地制宜发展新质生产力体制机制。[5]这对政府作用作出了新的要求，也对市场作用作出了新的规定。总的来看，政府作为“看得见的手”,在发展新质生产力中主要有三大作用：一是解决市场这只“看不见的手”不能解决或者解决不好的问题；二是弥补“市场失灵”,矫正“市场问题”;三是为有效市场的运行提供保障和良好环境，包括战略规划、顶层设计、制度安排、公共服务、基础设施、政策措施等。市场作为“看不见的手”,在一定制度框架的框架内，高效运行、畅通循环、不断升级，实现资源配置效率最优化和效益最大化。市场在资源配置中的决定性作用重在提升效率、激发活力、催生动力，更好发挥政府作用重在观大势、谋大局、抓大事。发挥政府和市场“两只手”的协同作用的目标在于因时、因地、因事推进新质生产力发展，以新质生产力推动高质量发展，更好激发全社会内生动力和创新活力，不断塑造发展新动能新优势。当前发挥政府与市场高效协同作用、因地制宜发展新质生产力的着力点在于：

First, leverage the government’s forward-looking and guiding role in scientific and technological innovation and industrial development. It is necessary to target the frontiers of world science and technology, seize the core areas of the new round of technological revolution and industrial revolution, focus on strategic emerging industries and future industries, and leverage the guiding role of planning and policies to form a first-mover advantage in technological and industrial innovation. It is necessary to adapt to the needs of developing new quality productive forces and promote the formation of a new policy paradigm. Policies on science and technology, industry, investment, finance, fiscal affairs, employment, and regional development constitute the policy system for macroeconomic governance. To develop new quality productive forces, it is necessary to promote the coordination, cooperation, and top-level design of these policies and strengthen the consistency of macroeconomic policy orientation. Adhering to a problem-oriented and goal-oriented approach, establish and develop new types of scientific and technological organizations and economic organizations, enhance the forward-looking, targeted, and precise nature of policies, and leverage the synergistic role of policy implementation among the central, local, and grassroots levels. Further improve the new nationwide system for mobilizing resources,[22]22 The “new nationwide system for mobilizing resources” (新型举国体制) refers to a state-led mechanism for concentrating resources on strategic scientific and technological breakthroughs, updated from the earlier planned-economy model to incorporate market mechanisms. promote scientific and technological development and industrial support in basic, public-interest, forward-looking, and strategic areas that the market cannot address, establish and improve new types of scientific and technological infrastructure, aggregate national strategic scientific and technological forces, implement major scientific and technological project research, strengthen scientific and technological innovation, especially original and disruptive scientific and technological innovation, and win the battle for key core technologies.

一是发挥政府在科技创新和产业发展中的前瞻性引领性作用。要瞄准世界科技前沿，抢抓新一轮科技革命和产业革命的核心领域，聚焦战略性新兴产业和未来产业，发挥规划和政策的引领性作用，形成科技和产业创新的先发优势。要适应新质生产力发展需要推动形成新型政策范式。科技、产业、投资、财政、金融、就业、区域等政策构成宏观经济治理的政策体系，发展新质生产力，要推动这些政策的协调配合和顶层设计，加强宏观经济政策取向一致性。坚持问题导向和目标导向，建立和发展新型科技组织、经济组织，提升政策的超前性、针对性、精准性，发挥好中央、地方、基层之间政策实施的协同作用。进一步完善中国特色新型举国体制，推进市场解决不了的基础性、公益性、前瞻性、战略性领域的科技发展和产业扶持，建立完善新型科技基础设施，聚合国家战略科技力量，实施重大科技项目攻关，加强科技创新特别是原创性、颠覆性科技创新，打好关键核心技术攻坚战。

Second, better leverage the government’s complementary, safeguarding, and regulating role in relation to the market mechanism. The market plays a decisive role in resource allocation, but it does not play all roles. In areas of market failure such as externalities, public goods, and maintenance of public order, the role of a capable government should be leveraged to provide public facilities for scientific research and public services supporting innovation, i.e., social common capital. In areas prone to “market problems” such as income distribution adjustment, innovation environment creation, and maintenance of social fairness and justice, the government’s complementary role in areas such as redistribution of scientific and technological income, scientific research organization and management, macro-governance, and property rights protection should be leveraged to form a high-level scientific and technological market system. The reform of the science and technology system focuses on institutional innovation. The government’s role in providing institutional supply for the innovation chain, industrial chain, capital chain, and talent chain should be leveraged to form an institutional system supporting comprehensive innovation.

二是更好发挥政府对市场机制的互补性保障性调节性作用。市场在资源配置中发挥决定性作用，但是并不是发挥所有作用。在外部性、公共品、公共秩序维护等市场失灵的领域，要发挥有为政府的作用，提供科研公共设施和支持创新的公共服务等社会公用资本。在收入分配调节、创新环境营造、维护社会公平正义等容易产生“市场问题”的领域，要发挥政府在科技收入再分配、科研组织管理、宏观治理、产权保护等方面的互补性作用，形成高水平科技市场体系。科技体制改革重在制度创新，要发挥政府在促进创新链产业链资金链人才链中的制度供给作用，形成支持全面创新的制度体系。

Third, leverage the leading role of enterprises in innovation, making enterprises the main body of industrial innovation and forming an integrated innovation system of industry, academia, and research. Promote the development of science and technology-based enterprises, making their R&D departments the main organizational form for implementing innovation. Strengthen the construction of the intellectual property market, vigorously promote intellectual property transactions, and enable the efficient circulation and transformation of scientific and technological achievements. Strengthen the connection between universities, research institutions, and enterprises, improve the distribution mechanism for innovation gains, and form a scientific research ownership structure that can better incentivize innovation. Build a new type of innovation ecosystem, explore and draw lessons from regional innovation mechanisms such as the “Silicon Valley model,” and form a new type of organizational system combining scientific research and production. Vigorously cultivate the spirit of scientists, entrepreneurs, and craftsmen, and build an innovation culture system.

三是发挥企业的创新主导作用，使企业成为产业创性的主体，形成产学研一体化的创新体系。推动科技型企业发展，使企业的研发部门成为实施创新的主要组织形式。加强知识产权市场建设，大力推动知识产权交易，使科技成果能够高效流通转化。加强大学、科研机构与企业的联系，完善创新收益的分配机制，形成能够更好激励创新的科研所有制结构。构建新型创新生态，探索和借鉴“硅谷模式”等区域创新机制，形成科研与生产相结合的新型组织体系。大力培养科学家精神、企业家精神和工匠精神，构建创新文化体系。

Fourth, follow market laws and promote national coordination in the development of new quality productive forces. Developing new quality productive forces according to local conditions is an important development methodology. The development advantages of various regions in China differ, and the foundations and conditions for developing new quality productive forces vary significantly. Under the condition of following market development laws, it is necessary to strengthen the coordination of industrial development by governments at all levels from the level of top-level design and strategic planning, forming a reasonable spatial layout and industrial distribution of new quality productive forces in different regions. Align the layout of new quality productive forces with major regional strategies, forming a leading goose effect[23]23 The “leading goose effect” (头雁效应) is a metaphor drawn from the V-shaped flight formation of wild geese, where the leading goose sets the direction and reduces air resistance for those following. In Chinese policy discourse, it describes how leading regions or sectors drive development for others. in the development of new quality productive forces for the three major sectors of Beijing-Tianjin-Hebei coordinated development, the integrated development of the Yangtze River Delta, and the construction of the Guangdong-Hong Kong-Macao Greater Bay Area. Strengthen the division of labor and coordinated linkage among these sectors, forming a wild goose-shaped gradient structure with the three major sectors as the leading geese.

四是遵循市场规律，推动新质生产力发展的全国统筹。因地制宜发展新质生产力，是重要的发展方法论。我国各区域发展优势不同，发展新质生产力的基础和条件显著差异，要在遵循市场发展规律的条件下，从顶层设计和战略规划层面，加强各级政府对产业发展的统筹，形成新质生产力在不同地区合理的空间布局和产业分布。将新质生产力布局与区域重大战略对接，形成京津冀协同发展、长三角一体化发展、粤港澳大湾区建设三大板块在新质生产力发展中的头雁效应，加强板块分工和协同联动，形成以三大板块为头阵的雁形梯度结构。

Fifth, follow the laws of industrial development and promote industrial coordination in the development of new quality productive forces. Target the frontiers of world science and technology and industrial development, strengthen government investment, guide the creation of new types of markets, and lay out future industries in advance. Vigorously develop strategic emerging industries with mature technology, strong industrial driving force, and world competitive advantages. Support and guide enterprise-led investment in high-tech industries, forming industrial development highlands and economic growth poles. Vigorously promote the transformation of traditional productive forces using national standards. For backward and eliminated industries, the government should do a good job in employment and social security, orderly guide the exit of sunset industries, reduce social costs, and promote the flow of resources to new quality productive forces. For traditional industries that are upgrading and transforming using new technologies, new models, and new business formats, the government should provide strong policy support, promote the “new-quality-ization” of traditional productive forces, and strengthen the technological driving role of high-tech industries and future industries on traditional industries.

五是遵循产业发展规律，推动新质生产力发展的产业统筹。瞄准世界科技和产业发展前沿，加强政府投入，引导创造新型市场，超前布局未来产业。大力发展技术成熟、产业带动强、具有世界竞争优势的战略性新兴产业，支持引导以企业为主导的高新技术产业投资，形成产业发展高地和经济增长极。以国家标准大力推进传统生产力改造，对于落后淘汰产业，政府要做好就业和社会保障工作，有序引导夕阳产业退出，降低社会成本，推动资源向新质生产力流动。对于利用新技术、新模式、新业态升级换代的传统产业，政府要在政策上大力支持，推动传统生产力新质化，加强高技术产业和未来产业对传统产业的技术带动作用。

Sixth, build a unified national market to provide a good market foundation for the development of new quality productive forces. China has the advantage of a super-large market and possesses the objective conditions for domestic circulation. The three key areas for the development of new quality productive forces are scientific and technological innovation, achievement transformation, and market absorption. The main means by which Western countries contain China are containment at the source of science and technology and market control. To develop new quality productive forces, it is necessary to further break down administrative division barriers, promote the national circulation and efficient allocation of innovation factors, and create a unified national market for products and services. The national and unified nature of production factor markets such as knowledge, technology, management, and data is crucial for the development of new quality productive forces. It is necessary to further remove barriers and obstacles to factor mobility and form a unified national innovation factor market.

六是构建全国统一大市场，为新质生产力发展提供良好市场基础。我国具有超大规模市场优势，具备内循环的客观条件。新质生产力发展的三个重点领域是科技创新、成果转化、市场吸收，西方国家对我国的遏制主要手段是科技源头遏制和市场控制。发展新质生产力要进一步打破行政区划壁垒，促进创新要素的全国流通和高效配置，为产品和服务打造全国统一大市场。知识、技术、管理、数据等生产要素市场的全国性和统一性，对新质生产力发展至关重要，要进一步接触要素流动壁垒和障碍，形成全国统一创新要素市场。

Online Editor: Paul

网络编辑：保罗