Abstract:    In order to intensively study China′s policies for S&T talents evaluation, this paper starts from the perspective of policy tools, combines quantitative research with directional research and conducts a quantitative analysis of the policy text. This paper constructs a policy tool X-Y two-dimension analysis framework for S&T talents evaluation, namely. The X dimension adopts the classification method of policy tools proposed by Howlett and Ramesh. According to the classification standard for public goods and services provided by the government, this classification method of policy tools divides policy tools into compulsory instruments, mixed instruments and voluntary instruments. Based on the development stage of China′s policies for S&T  talents evaluation, the Y dimension divides the policy development into four stages: preliminary development stage, exploratory stage, continuous propulsion stage and strengthening implementation stage.The research process is as follows: first, China′s 13 policy texts of science and technology talents evaluation from 2006 to 2018 were collected and screened out, and they were adopted as the research samples. Then, a total of 345 policy tools for S&T  talents evaluation were extracted from the policy texts, and coded in the form of "policy text number-specific policy tool". Second, these policy tools were included in the X-Y two-dimension analysis framework, and classified, quantified and statistically analyzed in the X dimension according to the classification standards of policy tools. Third, these policy tools were classified, quantified and statistically analyzed in the Y dimension according to the developmental stage of China′s policies for S&T talents evaluation. Furthermore, combined quantitative research was conducted on the policy tools according to the classification standards of the X dimension and Y dimension. This study analyzes the evolution and combined use of China′s policies for S&T talents evaluation, so as to analyze the status quo and defects of the evaluation policies, and finally to provide policy suggestions to the optimization of the evaluation mechanism for S&T talents in China.The research results of this paper are as follows: First, among the policy tools for S&T talents evaluation in China, the usage rate of compulsory policy tools is the highest (53.62%), followed by mixed instruments (37.97%), and voluntary instruments are the least used (8.41%). Thus it can be seen that China′s policies for S&T talents evaluation are based on the government as the decision-making subject, and the participation degree of social decision-making subject is low. Meanwhile, the use structure of the policy tools is unbalanced, and there is a large gap in the use condition between various kinds of policy tools. Second, in the four developmental stages of China′s policies for S&T talents evaluation, the number of policy texts and the application amount of policy tools have been progressively increasing. This indicates that in the context of science and technology structural reform, the Chinese government attaches more importance to S&T talents evaluation. However, different types of policy tools have different development situations in these four stages, the difference in the internal structure of policy tools is large, and the synchronization is insufficient.Three suggestions are put forward for reference in this paper: first, when selecting policy tools, it is necessary to strengthen the balance and rationality between the instruments, moderately increase the utilization frequency of voluntary policy tools and endow social decision-making subject with appropriate decision-making power. In addition, the usage rate of marketing tools should be increased. Second, the pertinence of policy tools needs to be strengthened, and the classified evaluation system for S&T talents should be executed and improved. Third, great efforts should be made to solve the problem of "overemphasis on papers, academic degrees, professional titles and rewards". It is necessary to not only strictly regulate and put into practice the implementation details and steps of policies that have been introduced, but also increase the solution depth and scope of the problem of "overemphasis on papers, academic degrees, professional titles and rewards", thereby creating a favorable environment for purifying the atmosphere for S&T talents evaluation and promoting the development of S&T talents and innovations. The above strategies are proposed to improve the policy design, provide a reference for building a science and technology scientific research personnel team with true scientific research ability and innovation ability. 

Key words: S&T talents evaluation, policy tool, policy text