官员政绩诉求、环境规制与企业生产效率
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摘要
改革开放以来,中国在经济建设方面取得了巨大成就,也面临着来自于国际与国内的双重环境压力。发达国家在国际气候谈判中要求中国承担更多的环保责任和义务,而中国长期存在的粗放式经济发展模式,也使资源环境对经济发展的约束日益突出。环境污染问题产生的首要原因在于,污染负外部性导致的市场机制失灵,因此,来自政府层面的环境规制尤为必要。然而,环境规制政策的制定和实施往往受制于地方政府的现实需要(如经济增长、增加税收)。在地方官员“为增长而竞争”的格局下,官员政绩诉求将导致地方政府过分追求短期经济增长,忽视教育、卫生、环保等民生问题,进而形成环境规制政策“软约束”。近年来,突发环境事件屡屡发生,不仅造成了巨大经济损失,更给人民群众生命财产安全带来直接威胁,不可否认,这与一些地方政府为追求经济增长而降低环境约束存在直接关系。
     与此同时,积极有效地利用外资是中国一项重要的对外开放政策,2011年,中国实际利用外资额达到1176.98亿美元。外商直接投资在为中国经济发展提供强劲动力的同时,其所产生的环境效应为诸多学者所关注。在经济全球化的背景下,外商直接投资带来的是生态环境污染的跨国转移,还是为东道国带来清洁生产技术和绿色发展理念?这一问题值得我们关注。
     在已有文献的基础上,本文重点关注三个问题:官员政绩诉求是否为导致环境污染事故频发的重要因素?外商直接投资是否会提升地区环境规制强度?地区环境规制是否会带来企业生产效率的提高?回答上述问题,不仅有利于我们从国际、国内两个视角对影响地区环境规制的诸多因素做出分析比较,更能从企业生产效率的视角,清晰刻画环境规制所带来的经济效应,进而对是否能够实现环境质量改善和经济效益提升的“双赢”,提供理论检验。本论文共分为7个章节,各章的具体内容安排如下:
     第1章为文章导论部分,重点介绍了文章的研究背景和意义、环境规制概念的界定和分类、文章的整体研究思路以及文章创新与不足之处。
     第2章为文献综述部分,重点从几方面对已有文献进行归纳梳理。主要包括地方政府激励与经济增长、地方政府竞争与地区环境保护、外商直接投资与地区环境规制的关系研究、地区环境规制对企业生产效率的影响四部分。本章从理论和实证两方面总结了已有文献的主要方法和结论,并指出需要进一步深化的研究方向,进而突出了本论文研究创新与价值所在。
     第3章介绍了中国工业污染状况和环境规制的演进。主要由环境管理机构的历史变迁、环保法律法规的建立完善、环境规制政策工具的丰富、工业污染的状况描述等几部分组成。这有助于我们全面了解中国环境规制政策的演进历史,把握环保工作取得的阶段性成果,为文章后续研究的展开奠定基础。
     第4章使用地区经济相对增长绩效衡量地方官员的政绩诉求,以1992-2006年的省级面板数据为研究样本,实证考察官员政绩诉求对辖区环境污染事故的影响。结果发现,地方官员的政绩诉求是导致辖区环境污染事故频发的重要因素,而且这一影响在沿海地区更加明显。与此同时,外商投资企业的比重、地区产业结构、地方官员的个人特征也在不同程度上影响着环境污染事故的发生。这一发现不仅为人们理解环境污染事故频发的原因提供了理论依据,也为近年来的官员考核机制改革提供了证据支持。
     第5章使用2003-2010年间中国各城市层面数据,实证分析了外商直接投资对地区环境规制强度的影响,并对这种影响的渠道做出了验证。主要结论有两点:第一,总体上看,外商直接投资能够显著提升地区环境规制水平,因此基于城市面板数据的经验证据并不支持外商直接投资的“污染天堂假说”。第二,在经济增长绩效较好、人力资本越丰富的地区,FDI对地区环境规制的正向作用越显著。由此可见,弱化经济增长绩效在官员政绩考核中的作用,提升地区人力资本水平,将有效发挥FDI流入对于改善地区环境质量的积极作用。
     第6章基于世界银行2005年的企业调查数据,对“波特假说”做出了实证检验,并在考虑企业异质性的情况下,考察了当期环境规制与滞后一期环境规制对企业生产效率的影响。结果显示:第一,当期环境规制强度与企业生产效率显著负相关,滞后一期环境规制强度与企业生产效率显著正相关;第二,政治关联将显著降低企业生产效率;第三,对于政治关联较强的企业而言,环境规制强度对企业生产效率的影响越弱。上述结论不仅为“波特假说”提供了微观证据,也证明中国环境规制政策在执行过程中存在较大弹性。
     最后一章总结了全文研究结论、概述现实启示,并指出未来的研究方向。
     与已有文献相比,笔者窃以为本论文有如下几方面的贡献:
     第一,从研究视角上讲,环境保护问题是当下政策制定者与社会公众普遍关心的热点问题,本论文的研究不仅具有理论贡献,更具有重要的现实意义。针对不断出现的环境污染事故,本文对其背后的经济制度因素进行了系统论述总结,并首次证实官员政绩诉求是造成环境污染事故频发的重要原因。进一步地,本文以环境规制强度而非实际污染水平为关注点,证明了FDI对于提升环境规制强度的积极作用,并对影响机制和渠道做出检验。上述发现丰富了相关领域的研究文献,不仅为近年来的官员考核机制改革提供了理论支持,也为政府制定相关政策措施,以发挥FDI对于地区环境治理的积极作用,提供了有益借鉴。
     第二,从分析方法上看,本论文在理论分析的基础上,注重对各研究问题的定量分析和实证检验,并根据不同问题的实际需要,运用多种计量方法(包括两阶段最小二乘法、固定效应泊松回归、系统GMM方法)展开相关研究,力求得到更加可靠和令人信服的结论。
     第三,从数据使用上看,本论文尝试基于不同层次的样本数据(包括省级层面数据、城市层面数据、企业调查数据)为研究问题寻求证据支持。尤其是对“波特假说”的实证考察中,与国内已有研究多基于地区、行业层面数据不同,本文为检验“波特假说”在中国是否成立提供了微观层面的经验证据,并通过区分样本企业的行业、区域、所有制以及政治关联强弱,对地区环境规制强度与企业生产效率之间的关系作出深入分析。
Since China's reform and opening up in1978, great achievement in economic construction has been made. Meanwhile, China faces the international and domestic environmental pressure. In international climate negotiations, developed countries have required China to take more environmental protection responsibilities and obligations. The long-standing extensive mode has resulted in obvious resource and environmental constraints on economic development. The leading cause of environmental pollution problems is the market failure resulting from the negative externality of pollution; therefore, environmental regulation is quite essential.
     The policy implementation of environmental regulation is often affected by local government targets, such as, economic growth and tax increase. The local government that competes for economic growth pays excessive attention to the short-term growth, and ignores the livelihood issues, e.g., education, health, and environmental protection. That will lead to the soft constraints of environmental regulations. In recent years, environmental accidents have often happened, which not only caused huge economic loss, but also brought direct threat to peoples' safety and property. Undoubtedly, there are direct relationships between the environmental accidents and soft constraints resulting from governments' excessive attentions to economic growth.
     Using foreign direct investment (FDI) actively and effectively has always been an important matter. In2011, the foreign capital actually utilized reaches117.698billions of dollars. Researchers focus on the environmental effect of FDI, while FDI provides strong impetus for China's economic development. Under the background of economic globalization, whether FDI has been with the multinational pollution transfer or FDI brought about clean production technology and green development concept? This issue is worthy of our concern.
     Based on the existing literature, this thesis focuses on the discussion about the following three questions. The first one is whether the officials'political achievement demand is an important factor leading to environmental pollution accidents. The second one is whether FDI improves the intensity of environmental regulation. The last one is whether the environmental regulation improves the enterprises productivity. The answers to the three questions would help us compare the factors affecting environmental regulation from the international and domestic view. Meanwhile, it also provides us a theoretical test on the question that whether we could realize the win-win situation of environmental protection and economic development. This thesis includes7chapters, and the main idea of each chapter is listed as follows:
     Chapter one firstly illustrates the research background and importance, and then introduces the definition and classification of the environmental regulations, and finally gives the frame, the innovation and deficiency of this research.
     The second chapter reviews the relevant literatures, including the local governments'incentive and economic growth, local governments'competition and environmental protection, the relationship between FDI and environmental regulation, the effect of environmental regulation on enterprises productivity. From the theoretical and empirical angle, it makes some comments and points out the directions and value of further research.
     Chapter three introduces the evolution of China's environmental regulation and the situation of industrial pollution. It mainly includes following contents:the institutional change of environmental management, the continued perfection of environment law, the enrichment of policy instrument and the description of industrial pollution. These works help us understand the changing course of China's environmental policies and phased results of environmental protection, which is the foundation for further research.
     Chapter four investigates the effect of officials'political achievement demand on environmental pollution accidents using the provincial panel data from1992to2006as sample. After measuring officials'political achievement demand using the relative performance of economic growth, we find that there is significantly positive relationship between officials' political achievement demand and environmental pollution accidents, and this relationship is more significant in coastal areas. At the same time, the ratio of foreign-invested enterprises, industrial structure and the personal characteristics of local officials also have significant effect on environmental pollution accidents. These findings provide us not only the theoretical evidence to understand the reasons of environmental pollution accidents, but also the evidence to support the reform of officials'evaluation system.
     Chapter five analyzes the relationship between FDI and environmental regulation using Chinese city-level data between2003and2010. The results suggest that firstly, on the whole, FDI is accompanied with more stringent environmental regulation. The empirical evidence based on the city-level data doesn't support the "pollution haven hypothesis" of FDI. Secondly, the positive effect of FDI on environmental regulation is more significant in the regions with better economic growth performance and richer human capital. The results infer that, FDI can play more efficient role on improving environmental quality when we weaken the performance evaluation of economic growth and raise the human capital.
     Chapter six empirically analyzes the relationship between environmental regulation and enterprises productivity based on the World Bank's enterprise survey data. Our research takes the firm heterogeneity into account and empirically tests the "Porter hypothesis". We find that firstly, current intensity of environmental regulation is significantly and negatively related to enterprises productivity, while lagged intensity of environmental regulation is significantly and positively related to enterprises productivity. Secondly, political connection significantly reduces enterprises productivity. Thirdly, the intensity of environmental regulation has weaker effect on the productivity of enterprises with stronger political connection. These findings not only provide micro-level evidence for "Porter hypothesis", but also prove there is large elasticity in the implementation process of Chinese environmental regulation policies.
     The last chapter draws out the conclusions, gives relevant implications, and points out directions for further study.
     Compared with the existing literatures, the innovations of this study are as following:
     Firstly, from the research viewpoint, environmental protection is a hot topic that policy makers and the public pay close attention to. This study has theoretical contribution and realistic significance. Aiming at the frequent pollution accidents, this study systematically summarizes the underlying reasons, and firstly confirms the important role of officials'political achievement demand. Additionally, focusing on environmental regulation rather than environmental pollution, this study suggests the positive effect of FDI on the environmental regulation, and verifies influencing mechanism. These findings enrich relevant literature, and provide evidence to support the reform of officials'evaluation system and valuable references to use the environmental effects of FDI.
     Secondly, in terms of analysis methods, this study pays more attention to quantitative analysis and empirical test. In order to draw more reliable conclusions, this study uses several methods according to different issues, such as2SLS, fixed-effected poisson regression and system GMM.
     Thirdly, for seeking the empirical supports, the research sample consists of different level data, e.g., provincial panel data, city-level data, and enterprise survey data. Especially, domestic literatures investigating the "Porter hypothesis" always use district-level or industry-level data as sample. By contrast, our research provides the micro evidence for investigating the "Porter hypothesis". Additionally, we make further analysis to the relationship between environmental regulation and enterprise productivity, considering enterprises'difference in industry, region, ownership and political connections.
引文
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