Abstract:    Under the background of increasingly intensified international scientific and technological competition, how to improve the efficacy of national innovation system has been widely concerned by major countries. At present, system failure and transformation failure restrict the efficacy improvement of China′s national innovation system, and demand-oriented scientific and technological innovation governance provides a way to solve two types of failures and improve the efficacy of national innovation system. Based on the theoretical framework of demand-oriented scientific and technological innovation governance and national innovation system efficacy improvement, we summarize the international typical experience of demand-oriented scientific and technological innovation governance, analyze the demand-oriented scientific and technological innovation governance challenges faced by China′s national innovation system, and puts forward corresponding countermeasures.Firstly, we build a theoretical analysis framework for demand-oriented governance of scientific and technological innovation and the efficacy of national innovation system, and explain the mechanism and path for demand-oriented governance of scientific and technological innovation to improve the efficacy of national innovation system. We propose that the system failure caused by the imperfect structure and operation mechanism of national innovation system restricts the efficacy of national innovation system from the structural level, and the transformation failure may also restrict the continuous improvement of national innovation system′s efficacy from the directional level. Demand-oriented scientific and technological innovation governance helps to solve structural problems caused by system failure and directional problems caused by transformation failure in the national innovation system, thus promoting the efficacy of the national innovation system.Secondly, we analyze the layout and practice of science and technology governance guided by US strategic demand-driven and EU mission-driven. The United States has long implemented national strategic demand-oriented scientific and technological innovation governance. Taking DARPA for example, DARPA is the most typical demand-oriented scientific research organization model in the United States, and has established a demand-oriented scientific and technological innovation project governance system. The EU continues to promote mission-oriented science and technology innovation governance. For example, Horizon Europe promotes project-driven science and technology innovation governance under the guidance of mission, so that research and innovation can better serve national strategies and meet social challenges.Thirdly, we analyze the main challenges about demand-oriented scientific and technological innovation governance that restrict the efficacy improvement of China′s national innovation system, and put forward the ways of conducting demand-oriented scientific and technological innovation governance. Based on the demand-oriented innovation paradigm and governance of scientific and technological innovation, the systematic layout of innovation direction, scientific and technological resources and innovation policies will help solve problems such as decentralized allocation of innovation resources, inconsistent interests of innovation subjects, and difficult transformation of scientific and technological achievements, so as to improve efficient allocation of scientific and technological innovation resources, organic coordination of various subjects and coordinated and adaptive departmental policies.The main conclusions of this study are as follows. Demand-oriented science and technology governance helps to solve system failure and transformation failure restrict the efficacy of national innovation system. From the practical level, demand-oriented science and technology governance has been embedded in the organization and management of science and technology activities in the United States and the European Union. Main reasons restricting the efficacy of China′s national innovation system include that China′s demand-oriented science and technology resource allocation system and evaluation system are not perfect, demand-oriented industry-university-research cooperation mechanism and guarantee mechanism are not well organized, and the science and technology innovation policy system that meets the new needs of economic and social development is not mature. Therefore, China urgently needs to coordinate the construction of the capacity, efficiency and direction of national innovation system, establish and improve demand-oriented science and technology governance system so as to strengthen the efficacy of national innovation system. 

Key words: national innovation system efficacy, demand orientation, scientific and technological innovation governance