环境事权上划与地方政府的土地出让行为——基于县级环保部门垂直化改革的准自然实验  

Environmental Centralization and Local Government’s Land Transfer Behavior:A Quasi-natural Experiment Based on County-level Environmental Protection Bureaucracies’Vertical Reform

作　　者：白秀叶 彭飞[1,2] BAI Xiuye;PENG Fei(School of Economics,Hefei University of Technology;Industrial Information and Economic Research Center,Hefei University of Technology)

机构地区：[1]合肥工业大学经济学院 [2]合肥工业大学工业信息与经济研究中心

出　　处：《数量经济技术经济研究》2025年第3期47-68,共22页Journal of Quantitative & Technological Economics

基　　金：国家自然科学基金面上项目(72273038);安徽省自然科学基金青年项目(2408085QG224);中央高校基本科研业务费专项资金资助项目(JZ2023HGPA0295,JZ2023HGTA0206,JZ2023HGQA0084)的资助。

摘　　要：条块间环境事权配置对于引导地方产业绿色转型具有重要意义。本文以中央自上而下推动的省以下环保部门垂直化改革作为准自然实验,创新性地使用县级环保部门挂牌与微观地块出让数据探究环境事权上划对地方政府土地出让行为的影响效应及作用机制。研究结果表明,环境事权上划显著降低了地方政府对污染密集型行业的土地出让规模。机制分析证实,改革既通过省级环保部门上收生态环境质量监测和环境监察事权提高监管能力,又通过市级环保部门上收环境执法事权提高执法能力,共同推动县级政府提高污染企业准入门槛,从而减少对污染密集型行业的土地供给。异质性分析表明,环境事权上划对污染密集型行业土地出让规模的影响在财政压力小以及治污压力大的地区更加显著。进一步分析发现,改革有效抑制了污染密集型企业的进入,但是仍难以顺利实现清洁产业转型,导致地方经济发展短期内受到一定冲击。The environmental federalism theory believes that the key influencing factor of local government’s environmental governance incentive is the allocation of environmental responsibilities among multiple levels of government.Before the vertical reform of Environmental Protection Bureaucracies(EPBs),EPBs below the provincial level undertook the same responsibilities,including environmental monitoring,supervision,and enforcement.EPBs are functional departments of local governments,and thus,local governments are responsible for personnel appointments and financial funds of EPBs.Due to the greater pressure faced by lower-level governments,EPBs are occasionally prone to“regulatory capture”by local governments when undertaking their responsibilities.Local governments can protect local enterprises by interfering with environmental monitoring data and regulation enforcement.Moreover,it is difficult for EPBs to supervise local governments’environmental primary responsibilities.Under territorial management mode,if local governments lack the incentive for environmental governance,the results of environmental regulation policies initiated by the central government will be unsatisfactory.To enhance the willingness of environmental governance of local governments,the reallocation of environmental responsibilities between“tiao”and“kuai”is urgently needed.The General Office of the CPC Central Committee and the General Office of the State Council jointly issued the Guidance on the Pilot Reform of the Vertical Management System for Monitoring,Supervision and Enforcement of EPBs Below the Provincial Level in 2016.The main content of the reform is to transfer the environmental quality monitoring,supervision,and enforcement responsibilities of lower-level EPBs to higher levels to enhance the independence of grassroots EPBs and reduce the protectionism of local governments.County-level EPBs have undergone a more thorough vertical reform than municipal EPBs,which is transformed from the component departments of the county-

关 键 词：环境事权上划 垂直化改革 土地出让 环境监管 环境执法 

分 类 号：F812.2[经济管理—财政学]