区位导向型生态环境政策的激励效应及策略选择

The Incentive Effect and Strategy Choice of Location-Oriented Ecological Environmental Policy

区域生态环境政策制定需要协调生态环境、公共服务和经济发展之间的关系。本文利用2010年中国实施的主体功能区制度下的国家重点生态功能区政策作为识别生态环境保护的外生冲击,基于2006—2016年中国县级面板数据,采用PSM方法和双重差分模型,考察区位导向型生态环境政策对生态环境质量、经济增长和基本公共服务的影响,并识别地方政府在面临生态环境约束条件下的策略选择。研究发现,国家重点生态功能区政策的实施提升了生态功能区的环境质量和生态质量,但同时导致这些地区经济发展水平和基本公共服务供给水平的相对下降;国家重点生态功能区政策增加地方政府财政支出的同时,抑制地方政府的财政收入,扩大地方政府的财政收支缺口;财政收支缺口越大的县,地方政府发展工业的激励越强,进而面临着环境污染进一步加剧的风险,基本公共服务供给水平并未得到明显提升,这与生态功能区的激励结构有关。本文的政策启示在于,"约束性"的生态环境政策需要做对"激励",考虑政策实施过程中生态环境保护和公共服务的直接成本和机会成本,稳定政策实施的预期。

Regional ecological environmental policy formulation requires coordination among ecological environment,basic public services,and economic development.This paper uses the national key ecological function zone policy under the main functional zone system implemented in China in 2010 as an exogenous shock to identify ecological environmental protection.We use PSM method and a DID model based on Chinese county-level panel data from 2006-2016 to evaluate the impact of the location-oriented ecological environmental policy on economic growth,basic public services,and eco-environmental quality,and to identify the strategic choices of local governments in the face of eco-environmental constraints.Firstly,it is found that the implementation of the national key ecological function zone policy has improved the environmental quality and ecological quality of ecological function zones,but at the same time led to a relative decline in the level of economic development and the level of basic public service provision in these areas.Secondly,the national key ecological function zone policy increases local government fiscal expenditures while suppressing local government fiscal revenues and widening the fiscal gap.Thirdly,the greater the fiscal gap,the stronger the incentive for local governments to develop industry,which leads to the risk of further intensification of environmental pollution,while the level of basic public service provision has not been significantly improved.These are related to the incentive structure of ecological function zones.The policy implication is that“constrained”eco-environmental policies need to be incentivized properly,considering the direct and opportunity costs of eco-environmental protection and public services in the process of policy implementation,and stabilizing the expectations of policy implementation.