通过对西安市教育资源、创新能力和经济发展现状的分析，发现西安市经济存在“创新基础强、创新能力中、经济发展弱”的创新发展困境，其成因为创新活动经费结构非均衡和研发人员薪酬激励不足造成的研发活动校企结构和研发成果结构双失衡，进而导致了创新资源配置和创新驱动发展的双重效率损失，建议政府通过产业结构优化和校企创新活动结构优化等措施激活企业创新效率和提高研发成果市场转化率，有效实施创新驱动经济发展战略。

Through the analysis of its educational resources, innovation ability and the current situation of economic development, the innovation and development dilemma of "strong innovation foundation, medium innovation ability, weak economic development" is found in the economy of Xi'an city. The problem is caused by the disequilibrium of arrangement on innovation funds and lack of compensation incentive on R & D personnel, resulting in double structural imbalance on both R & D activities and innovation achievements between university and enterprise, which led to double efficiency losses on allocation of innovation resources and innovation driven development. It is suggested that the government should activate the innovation efficiency of enterprises, improve the market efficiency of R & D activities and effectively implement the strategy of innovation driven development through the measures such as optimization of industrial structure and the structure of enterprise innovation activities.

国家社会科学基金项目“城镇化对中国经济发展的结构性影响研究”（15XJL005）、教育部项目人文社会科学研究项目“中国新常态经济发展的动力结构优化研究”（15XJA790004）。