环保垂直管理改革的组织逻辑与治理效应

The Organizational Logic and Governance Effect of Vertical Management Reform of Environmental Protection

环保垂改作为中国环境管理体制改革的重要举措,开启了中国环境管理体制由属地管理转向省内垂直管理。基于控制权理论构建环保垂改的理论分析框架,运用2013—2021年地级市面板数据和多期双重差分模型检验了环保垂改的治理效应及其影响机制。研究表明:环保垂改使市级和县级环保部门的控制权在组织层面发生了转移,为环保部门内部的上下级垂直管理赋予了实质性权威,从而提高了基层环境执法力度,降低了地区污染物排放;动态效应分析表明,环保垂改产生的污染减排作用具有较好的持续性;进一步分析表明,环保垂改对财政压力和官员关联促进污染物排放具有显著的负向调节作用,并对边界污染的治理效应更为显著。研究结论为地方政府与环保部门间以及上下级环保部门间如何有效分工与协作、保障环境治理长治久安提供了理论和经验证据。

As an important measure of environmental management system reform in China,the environmental management system in China has been changed from territorial management to vertical management in the province.Based on the theory of control rights,the theoretical analysis framework for vertical reform of environmental protection is constructed,and the governance effect and its influencing mechanism of environmental protection vertical reform are tested by using the panel data of prefecture-level cities from 2013 to 2021 and the multi-period difference-in-difference model.It is found that the vertical reform of environmental protection has shifted the control rights of municipal and county environmental protection departments at the organizational level,giving real authority to the vertical management of the upper and lower levels within the environmental protection departments,thus improving the enforcement of environmental law at the grassroots level and reducing regional pollutant emissions.The dynamic effect analysis shows that the pollution reduction caused by vertical reform of environmental protection has good sustainability.Further analysis shows that environmental protection reform has a significant negative regulatory effect on financial pressure and official association to promote pollutant discharge,and the control effect on border pollution is more significant.The research findings provide theoretical and empirical evidence for how to effectively divide and cooperate between local governments and environmental protection departments,and between higher and lower environmental protection departments to ensure long-term stability of environmental governance.