政府采购如何影响产能利用率?——来自中国制造企业的经验发现

How does Government Procurement Affect Capacity Utilization?The Evidence from Chinese Manufacturing Enterprises

利用世界银行的中国投资环境调查数据,本文从企业层面实证检验了政府采购对产能利用率的影响,并分析了相关影响机制。研究发现:政府采购没能成为产能过剩治理的政策工具,反而成为企业产能利用率下降的重要诱因。经验分析表明:与缺乏政府订单的企业相比,获得政府订单诱使企业产能利用率下降2%,企业的政府采购销售占比每提高1%,其产能利用率随之下降6%。考察相关机理后发现:政府采购不但诱导了企业投资扩张与行业投资潮涌,从而诱致了企业过度产能供给;而且加剧了地方政府保护与反竞争行为,从而抑制了企业产能出清;最终,通过企业供-需失衡的动态传递机制,政府采购抑制了企业产能利用率。鉴于此,本文认为,应高度重视政府采购引致的企业产能应对行为,完善政府采购的机制设计。

As the main way of public finance,government procurement is a powerful tool for industrial policy,which can fully reflect the intentions at the national level.While government procurement continues to expand and begin to highlight the effect of industrial policy,China is also facing a serious overcapacity.The average capacity utilization rate of the national industry in 2001-2011 years is only 60.68%,far below the international standard for the full capacity utilization of 85%.Since government procurement has become a powerful industrial policy tool in theoretical logic and can reflect national policy intentions,can Chinese government procurement also play a role in domestic overcapacity governance?Using the data of the World Bank on China investment environment survey(2005 and 2012),this paper empirically examines the impact of government procurement on the capacity utilization from the micro enterprise level,and analyzes the related mechanisms.The empirical analysis shows that,compared with the enterprises lacking of government orders,obtaining government orders makes the capacity utilization rate of enterprise decrease by at least 2%,with the sales ratio of government procurement at the enterprise level is increasing in 1%,the utilization rate of enterprise capacity decreases by 6%.Secondly,as far as the mechanism is concerned,government procurement in China can affect the capacity utilization rate of enterprises from three aspects.First,in the supply side,government procurement can increase the supply of capacity by inducing investment expansion of enterprises and investment tide within the industry,which resulting in overinvestment and overcapacity in the end.Secondly,Government procurement also intensifies the local government protection and enterprise anti-competitive behavior,which inhibits the normal reduction of enterprises capacity.Finally,through the dynamic transmission mechanism of enterprise supply and demand imbalance,government procurement inhibits the increasing of capacity utilization rate of enterprises in the end.Compared with the existing research,the possible contribution of this paper is:first,from the perspective of research,this article may be the first empirical literature to examine the government procurement and capacity utilization from the micro enterprise perspective.Because of the data restriction,the literature mainly examines the government procurement and its influence from the macro and middle level.This paper uses the World Bank of China investment survey data to obtain the government purchase information of the government orders directly,and then verifies the micro influence of government procurement on the capacity utilization of enterprises.Secondly,in the research method,this paper combines the tools IV method,the treatment effect model,the endogenous transformation model,the propensity score matching and the panel fixed effect to control the multiple endogenous problems that may exist in the econometric model,and obtains a relatively robust empirical results,which effectively identifies the causality of government procurement on the capacity utilization of enterprises.Thirdly,as far as the research content is concerned,this paper verifies the mechanism channel that government procurement may inhibit the capacity utilization of the enterprise from many aspects such as the formation of overcapacity supply,the broken of capacity clear and the worsen unbalance of the capacity supply and demand,which makes up for the shortage of the existing research and help the government to optimize in the supply side structural reform,such as‘let go of the overcapacity’and optimize the government policy.In the end,this article thinks that we should attach great importance to the overcapacity response of government procurement on enterprises,improve the mechanism design and the efficiency in government procurement policy implementation,and make sure the government should rectify the size preference of the local government in the process of purchasing,especially to rectify the behavior of the local government to discriminate the small and medium enterprises through the agent sellers of large enterprises or well-known enterprises.