国家重点生态功能区转移支付的生态保护效应研究——基于陕西省数据的实证研究

Study on the ecological protection effect of the transfer payment of national key ecological function areas: an empirical study based on Shaanxi data

我国生态环境保护和生态补偿以《国家主体功能区规划》为指导,空间上划分出国家重点生态功能区作为生态环境保护的重点范围并对其进行旨在生态补偿的中央财政转移支付。现阶段对转移支付的生态保护效应研究大多集中于政策解读和理论分析,实证研究相对不足,该制度2009年实施以来已有七八年时间,具备了开展实证研究的基础。文章以陕西省33个国家重点生态功能区为研究样本,在按各县级政府财政收入高低进行分组之后,实证分析了整体样本、高财政收入样本和低财政收入样本的生态补偿转移支付对生态环境质量指数的促进效应。整体回归结果显示,转移支付对生态环境质量的改善起到了重要的促进作用,影响系数显著为正,陕西省国家重点生态功能区所在县级政府的生态环境质量自2009年以来,呈现"基本稳定,逐渐好转"的趋势,与国家重点生态功能区转移支付的激励作用密不可分,同时,财政收入水平对生态环境质量具有显著的影响,且财政收入水平越高,转移支付对生态效益产出的促进作用越大。分组回归结果显示,高财政收入的国家重点生态功能区的转移支付影响系数要大于低财政收入的国家重点生态功能区转移支付的影响系数,这表明将转移支付拨付给高财政收入组更有效率。因此从效率角度看,现阶段国家重点生态功能区转移支付的标准即县级政府财政收支缺口符合公平原则,但相对缺乏效率,以财政收支缺口为补偿标准的方式不利于转移支付效率提升,对生态环境质量改善作用有待进一步挖掘。最后文章基于兼顾效率与公平视角提出了充分发挥转移支付生态保护激励效应,提高生态环境质量的政策建议。

With the guidance of the national main functional area planning,the ecological environment protection and ecological compensation in China classified the national key ecological function areas as the key areas of ecological environment protection,and obtains transfer payments from the central government which aims at ecological compensation.At present,the study on the incentive effect of the ecological transfer payment mainly focuses on policy interpretation and theoretical analysis,while empirical study is relatively insufficient.It has been seven or eight years since the implementation of the ecological compensation system of national key ecological function areas in 2009,and it has the basis of empirical study.This paper empirically analyzes the effects of the transfer payment of national key ecological function areas on the ecological protection in the whole sample,high financial income sample and the low financial income sample,by taking 33 national key ecological function areas in Shaanxi Province as the research sample.The overall regression results show that the transfer payment plays an important role in promoting ecological environment quality,the influence coefficient is significantly positive,and the ecological environment quality in national key ecological function areas of Shaanxi Province showing‘basically stable,gradually improved＇trend since 2009,closely related with the incentive effect of transfer payment of national key ecological function areas; at the same time,the level of financial revenue has a significant impact on the quality of the ecological environment,and the higher the level of fiscal revenue,the greater the role of transfer payments in the ecological benefits output.The grouping regression results show that the transfer payment influence coefficient of high financial income national key ecological function areas is greater than the influence coefficient of low financial income national key ecological function areas,which indicates that it will be more efficient when the transfer payment allocated to high income group.Therefore,the gap between revenue and expenditure as the transfer payment standard of national key ecological function areas at the present stage is in line with the principle of fairness,but relatively lacks efficiency,the transfer payment standard is not conducive to enhance the efficiency of transfer payment,improving the environmental quality of the ecological role needs to be further mining.Finally,this paper puts forward some policy suggestions to give full play to the incentive effect of ecological protection of transfer payment and improve the quality of ecological environment based on the perspective of efficiency and equity.