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产业政策是否有效一直是学术界争论的焦点问题。文章选取两家光伏企业作为案例,通过考察财政补贴政策对光伏企业的投融资、技术创新与市场开拓等三方面行为的影响及其作用机制,辨析光伏产业财政补贴政策的有效性。案例研究表明,政府对生产投资的过度鼓励并未“瞄准”培养与提升企业自生能力的目标;基础研发、知识产权保护等制度化公共产品的供给不足,从根本上制约了我国光伏企业创新能力的发展与公平竞争市场环境的形成;政府在提供市场运行制度、弥补市场失灵与培育市场主体等方面还缺乏足够的能力,对自身权力约束的制度基础和政府管理体制还不健全。以上因素制约了补贴政策作用的充分发挥,因此,应通过体制改革将政府经济职能规限在一个合理范围内,提高政府施政能力;培育市场中介并提供制度化的公共服务来创造公平竞争的市场环境;实施必要的规制手段,同时进行能源价格机制以及电力体制等方面的配套改革,保障光伏电力的优先生产与消费权。
Whether the industrial policy is effective or not has always been the focus of academic debate. This article chooses two PV enterprises as examples, examines the impact of financial subsidies on three aspects of investment and financing, technological innovation and market development of PV enterprises and their mechanism of action, and analyzes the effectiveness of financial subsidies in PV industry. Case studies show that the excessive encouragement of the government on investment in production does not aim at cultivating and enhancing the viability of enterprises. The insufficient supply of institutionalized public goods, such as basic research and development and intellectual property protection, has fundamentally restricted China’s photovoltaic enterprises The development of innovative ability and the formation of a fair competitive market environment. The government lacks sufficient capacity in providing market operation system, making up for market failures and cultivating market players, and the institutional basis for restraining its own power and the government administration system are still not perfect. The above factors have restricted the full play of the role of subsidy policy. Therefore, the government’s economic functions should be restricted within a reasonable range through institutional reform to improve the government’s ability to govern; foster market intermediaries and provide institutionalized public services to create fair competition in the market Environment; to implement the necessary regulatory instruments, at the same time the energy price mechanism and the power system and other aspects of supporting reforms to protect the priority PV power production and consumption rights.