增长目标对地方环保注意力分配的影响研究  

Research on the Effects of Growth Goals on Local Allocation of Environmental Attention

作　　者：冯国强 FENG Guoqiang(School of Economics,Lanzhou University)

机构地区：[1]兰州大学经济学院

出　　处：《公共管理评论》2024年第4期230-255,共26页China Public Administration Review

基　　金：国家自然科学基金青年项目“环保部约谈对邻居城市的治理效应:以空气污染治理为例”(项目批准号:71903079);甘肃省软科学专项项目“甘肃省县域制度质量提升与经济增长动能转换模式研究”(项目批准号:20CX4ZA035)的资助。

摘　　要：增长目标引领是中国经济运行的重要特征,实践中地方政府又会如何根据增长目标来分配政策注意力,以此化解多任务之间的冲突?通过对政府工作报告的文本挖掘,本研究从环保注意力分配的角度来回答上述问题。研究发现:地方政府面临的增长目标压力越大,政府工作报告中体现的环保关注度越低;这种目标压力包括挖掘辖区增长潜力的压力和完成上级分解目标的压力,其中第一类压力对环保注意力分配的抑制作用是第二类的1.5倍;晋升激励较低的官员会稀释第二类目标压力的抑制作用,表现为比其他官员更加关注环境保护;相比市委书记,市长更容易强化第一类目标压力对环境关注的抑制作用。进一步研究发现,党代会召开当年和之后两年,地方官员倾向于降低环境关注,并且注意力分配对环保监管、投资的作用不明显,但关注环境对官员尤其市长的职业生涯有积极影响。本研究的政策启示是,针对收益周期长、缺乏立竿见影效果的任务,过程考核比结果考核更重要;提高政策注意力分配实质性的治理效果,需要以缓和多任务间的目标冲突为前提。Guidance on growth targets is an important feature of Chinas economy.In practice,how do local governments allocate policy attention based on growth targets to resolve the conflicts among multi-target tasks?Through text mining of government work reports,this article answers the above question from the perspective of the allocation of environmental attention.We find that:the greater the growth target pressures faced by local governments,the lower their attention to environmental protection,as reflected in government work reports.Local agents generally face the dual pressures of tapping into the growth potential of their jurisdictions and completing the target tasks imposed by their superiors.Among these,the inhibitory effects of the first type of target pressures on the allocation of environmental attention is 1.5 times more than that for the second type.Officials with lower promotion incentives will dilute the inhibitory effects of the second type of target pressure,exhibiting a greater focus on environmental protection than other officials.Compared with the secretary of the municipal Party committee,the mayor is more likely to strengthen the inhibitory effects of the first type of target pressure.Further research finds that local officials tend to reduce environmental attention during the year a Party congress is held as well as within two years after it is held,and the effects of attention to environmental regulation and investment are not obvious.But paying attention to the environment has a positive impact on the careers of local officials,especially the mayors.The policy implication of this article is that for tasks with long lifecycles and a lack of immediate results,process assessments are more crucial than outcome assessments.To improve the substantive governance effects of allocation of policy attention,it is necessary to first alleviate the conflicts between the objectives of multiple tasks.

关 键 词：目标管理 增长压力 晋升激励 环境保护 注意力分配 

分 类 号：F12[经济管理—世界经济]