环保监测监察执法机构扁平化改革与边界水污染  

Flattening reform of environmental monitoring and enforcement agencies and transboundary water pollution

作　　者：李卫兵[1] 杨咏文 LI Weibing;YANG Yongwen(School of Economics,Huazhong University of Science and Technology,Wuhan Hubei 430074,China)

机构地区：[1]华中科技大学经济学院,湖北武汉430074

出　　处：《中国人口·资源与环境》2023年第4期137-146,共10页China Population,Resources and Environment

基　　金：华中科技大学文科“双一流”建设项目基金。

摘　　要：关于政府组织结构及其改革的现有研究大都聚焦于考察其经济职能,却未能分析其相关环保职能。作为国家现代化治理体系的重要组成部分,政府的环保职能对环境治理具有重要意义,特别是在污染较严重的发展中经济体。为弥补现有文献的不足,该研究借助中国推行的省以下环保垂直管理改革这一准自然实验,结合2012—2019年水质和气象数据,识别了这种政府环保监测监察执法机构的扁平化改革与边界水污染之间的因果关系。研究发现,环保监测监察执法机构的扁平化改革能显著抑制边界水污染,但对非边界水质影响不显著。具体来说,改革后边界水体中溶解氧浓度提高约7%,化学需氧量浓度降低约2%,氨氮浓度降低约4%。一系列稳健性检验证实该结论是稳健、可信的。进一步结合政府工作报告和企业排污数据的检验表明,该改革抑制边界水污染的作用机制主要包括:(1)强化地方政府的边界污染治理意识,并使得边界处企业的污染排放量明显下降。(2)通过人事任命权改革破解地方政府官员和当地环保机构因利益输送而形成合谋,有效抑制了地方政府的策略性排污行为,从而改善边界环境质量。揭示出政府环保监测监察执法机构的扁平化改革更符合中国现阶段的污染特征和环境需求,政府应适度强化中央或较高级别政府的环境监测监察执法能力,并有效加强地方政府在行政边界处的治污激励和较高级别政府的监督效力,削弱地方政府在环境检测和监察事务中的决策权。该研究丰富了污染治理和政府职能组织结构设计的相关研究,并试图为缓解中国的边界污染问题提供决策参考。Most of the existing studies on government organizational structure focus on its economic functions but ignore the environ⁃mental aspect,which is especially important for developing countries.To fill the gaps,this paper identifies the effect of a flattening re⁃form of government environmental monitoring and enforcement agencies on transboundary water pollution with the help of a quasi-natu⁃ral experiment.We found that the flattening reform significantly improved transboundary water quality.Specifically,the reform in⁃creased DO concentration by about 7%,reduced COD concentration by about 2%,and reduced NH3-N concentration by about 4%.A se⁃ries of robustness tests confirmed that the results were convincing.Further results showed that the mechanisms of the reform mainly in⁃cluded:①the strengthening of the awareness of local governments in controlling transboundary pollution;②the adjustment of person⁃nel appointment powers that broke the collusion between local government officials and local environmental protection agencies,which effectively improved the environment at the border.In addition,the study found that the abatement effect existed only at urban borders,while there was no significant change in environmental quality at provincial borders,suggesting that the transfer of authority over envi⁃ronmental monitoring and enforcement to higher levels of government was one of the keys contributing to the effect of this reform.This paper reveals that the flattening reform of government environmental monitoring and enforcement agencies is more in line with China’s pollution characteristics and needs at this stage,and thus the government should appropriately strengthen the monitoring and enforce⁃ment capabilities of the central government or higher-level local governments.It is hoped that this study can enrich the research related to pollution control and the organizational structures of government and provide a reference for decision-makers to mitigate the trans⁃boundary pollution problem in Ch

关 键 词：组织结构 扁平化改革 边界污染 环保垂直管理改革 

分 类 号：F062.6[经济管理—政治经济学] F062.2F426