From contributors to boundary spanners: Evolving roles of government agencies in China's innovation policy network (1980–2019)

The complexity of innovation governance has led to increasing participation of relevant government agencies and a clear division of their roles within policy networks, where they function not only as contributors but also as boundary spanners. This study investigates the evolving roles of government agencies as contributors and boundary spanners (i.e., brokers) within the innovation policy network. We perform a social network analysis (SNA) of China's innovation policy network, consisting of 536 policy documents formulated and co-sponsored by central government agencies between 1980 and 2019. Our findings reveal several key insights: First, since 1980, there has been a gradual increase in the number and share of agencies acting as brokers, with most agencies becoming contributors. Second, in considering boundary spanners, China's innovation policy network has mainly consisted of a small number of key players and a large number of supporters, with dedicators and harmonizers being in minority. Finanlly, science and technology (S&T) agencies' primary brokerage roles have undergone significant changes, shifting from solely representatives and liaisons to now encompassing the roles of liaisons, representatives, and consultants; economic agencies have transitioned from being merely representatives and liaisons to primarily serving as liaisons, consultants, and representatives. The primary brokerage roles of both S&T agencies and economic agencies have changed from representatives to liaisons, signaling a shift in their broker function from connecting members both inside and outside the group to facilitating interactions with members of outside groups.