Entrepreneurial Support Organizations as Innovation Infrastructure: Ecosystem Roles, Reach, and Policy Implications

Session Submission Type: Panel

Abstract

Entrepreneurial support organizations (ESOs)—such as incubators, accelerators, research-driven partnerships, and nonprofit intermediaries—serve as key infrastructure in the innovation economy. As knowledge brokers and policy instruments, ESOs are central to national and regional strategies for science-based economic development, often tasked with bridging academic research, technology transfer, and startup formation (Stam, 2015; Wurth et al., 2022). However, their organizational forms, governance models, and integration with public policy vary widely (Welter & Baker, 2021). This panel explores how ESOs contribute to the design and evolution of entrepreneurial ecosystems, with a particular focus on their role in facilitating equitable access to innovation resources across diverse communities. 

Drawing on three empirical studies from U.S. cities, the panel examines how ESOs operate within complex policy environments to manage knowledge, mobilize resources, and support inclusive innovation  (Herbertson & Lee, 2024). It highlights how public–private collaborations within ESOs influence the geographic and demographic reach of entrepreneurship, and how regional ecosystem development intersects with broader science and technology policy goals. 

The first paper presents a case study of Richmond, Virginia’s “1717 Collective,” a coordinated network of nonprofit and private sector stakeholders working to overcome fragmentation in the city’s innovation infrastructure. Through qualitative interviews and thematic analysis, this paper illustrates how formal collaboration—anchored by the appointment of an Ecosystem Director—enhanced knowledge sharing, organizational alignment, and outreach to underrepresented entrepreneurs. It contributes to research on ecosystem governance and networked leadership (Harper-Anderson, 2018). 

The second paper investigates post-incubation location decisions among entrepreneurs emerging from university-affiliated ESOs in Atlanta, Georgia. Leveraging a novel dataset that combines web-scraped records, business registration data, and ecosystem archives, the study reveals how innovation-driven entrepreneurs balance geographic mobility with access to scientific resources, capital, and networks. It sheds light on the spatial dynamics of entrepreneurial ecosystems and the role of ESOs in shaping innovation geographies (Hartman & Kear, 2024). 

The third paper analyzes the Ascend Program, a national ESO initiative designed to promote technology-enabled business development among Minority- and Women-Owned Businesses (MWOBs) across 13 cities. Drawing on 90 interviews and fieldwork, it explores how local ESOs coordinate with civic and public actors to scale inclusive innovation efforts, emphasizing the importance of cultural competence, data-informed delivery, and adaptive governance. The study contributes to scholarship and practices about equitable participation in innovation systems (Wang, 2023). 

Together, these papers reveal how ESOs shape innovation ecosystems not only through resource distribution and entrepreneurial support, but also through their capacity to integrate scientific knowledge into policy-relevant practice. They offer policy insights into how ESOs can function as sites of knowledge management, collaborative governance, and inclusive growth, aligning with APPAM’s 2025 theme of Forging Collaborations for Transformative and Resilient Policy Solutions.

Policy Area

• Innovations in Science and Technology

Secondary Policy Area

• Housing, Community Development, and Urban Policy

Chair

• Cathy Liu, Georgia State University

Discussant

• Luisa Nazareno, Virginia Commonwealth University

Organizer

• Qingfang Wang, University of California, Riverside

Individual Presentations

• A Collective Approach to Ecosystem Building: The Case of Richmond VA - Presenting Author: Elsie L. Harper-Anderson, Virginia Commonwealth University

• Where to Go from Here? Entrepreneurs’ Post-Incubation Location Decisions - Presenting Author: YIFEI CHEN, Georgia State University

• Creating Intentional Space: Governance and Inclusion in Entrepreneurship Ecosystems - Presenting Author: Qingfang Wang, University of California, Riverside

• Harnessing Data-Driven Resilience to Empower Underserved and Rural Small Businesses Amid Economic Uncertainty - Presenting Author: Susan Obasi-Ikeagwu, Walden University