林长制政策对城市土地绿色利用效率的影响

Impact of the forestry chief system on urban land green use efficiency

林长制政策是中国新发展理念下的创新性举措,也是促进土地集约利用和推动生态文明建设的重要支撑。为探究林长制政策与城市土地绿色利用效率的关系,该研究基于2017年合肥市、安庆市与宣城市设立林长制政策这一准自然实验,选取2006—2020年中国232个地级及以上城市的面板数据为样本,采用数据包络分析方法测算了城市层面的土地绿色利用效率,并在机制分析的基础上运用合成控制法和渐进双重差分法构建反事实框架,识别了林长制政策对城市土地绿色利用效率的影响及路径。研究发现:①整体来看,样本期内合肥市、安庆市、宣城市的城市土地绿色利用效率的年均增长率分别为12.103%、16.090%、7.505%,表明林长制政策显著提高了城市土地绿色利用效率,而且促进效应在政策未实施前效率低的地区表现得更加明显。经过一系列稳健性检验,该结论依然成立。②分年份来看,合成控制法的政策效应与城市土地绿色利用效率的年增长率都表明林长制政策的促进作用具有长期性和滞后性,随着时间的推移促进作用越强。③机制检验结果表明,林长制政策主要通过提高政府环境注意力、经济集聚水平和公众环境关注度来提高城市土地绿色利用效率。由此,该研究建议政府积极建设林长制政策体系。通过林长制政策压实领导干部生态责任,提高政府的生态环境注意力,进而推动政府在提高土地绿色利用效率中做出更多努力;领导干部应摒弃生态保护与经济发展无法共促的思想,通过提高经济集聚水平,提高城市土地绿色利用效率;政府应积极带动多元主体参与林长制政策与环境治理,拓宽公众参与渠道,完善公众参与机制,激发公众参与的积极性和主动性。

The forestry chief system is an innovative policy under China's new development pattern and an essential support for intensive land use and ecological civilization.To examine the impact of this system on urban land green use efficiency,this study regarded the forestry chief system carried out since 2017 in Hefei,Anqing,and Xuancheng cities as a natural experiment.Based on panel data from 232 prefecture-level cities in China from 2006 to 2020,the study used the data envelopment analysis method to measure urban land green use efficiency.It also constructed a counterfactual framework using the synthetic control method and the staggered DID method to identify the impact and mechanisms of the forestry chief system on urban green land use efficiency.The results showed that:①Overall,the average annual growth rates of urban land green use efficiency in Hefei,Anqing,and Xuancheng during the sample period were 12.103%,16.090%,and 7.505%,respectively,indicating that the forestry chief system significantly promoted urban land green use efficiency,and the effect was more pronounced in areas with low efficiency before the policy was implemented.The results still held after a series of robustness tests.②On a yearly basis,the policy effect of the synthetic control method and the annual growth rate of urban land green use efficiency both showed that the stimulating effect of the forestry chief system was of a long-term and lagged nature,and this effect would be stronger over time.③The mechanism test showed that the forestry chief system mainly realized the improvement of urban land use efficiency through three pathways,namely,government environmental attention,economic agglomeration level,and public environmental concern.Therefore,government should actively build the forestry chief system.To solve the dilemma of urban expansion and low green land use efficiency,the forestry chief system should consolidate the ecological responsibility of leading officials and improve the government's attention to the ecological environment.Leading officials should abandon the assumption that ecological protection and economic development cannot be promoted together,and they should endeavor to improve urban land green use efficiency by increasing economic agglomeration levels.The government should encourage the full participation of multiple players in the forestry chief system,bringing the public into the framework of the system to improve urban land green use efficiency.