摘要：跨行政边界区域的环境治理是生态文明建设的重点和难点，也是新时期美丽中国建设的重要场域。本文以“十一五”中央将减排指标下放到省市为准自然实验，基于中国污染企业数据并汇总到区县，探讨环境分权体制下，中央将减排指标下放到省市对边界污染治理的影响，并重点探讨减排指标下放后地方政府面临的“经济-环境”双目标约束的边界效应。研究发现：“十一五”将减排指标下放后，省边界区县的COD污染排放企业数量、新进企业和污染排放规模显著增加，边界污染加剧；经济增长目标约束会削弱地方政府“以邻为壑”动机，有利于边界污染治理；环境保护纳入官员政绩考核体系后，环境目标约束会加强地方政府“以邻为壑”动机，不利于边界污染的改善；在经济增长和环境保护双重目标约束下，省域边界地区成为平衡经济发展和环境保护的关键，给政府“策略性减排”提供了机会。影响途径研究发现，与非省边界区县相比，省边界区县污染企业进入门槛更低，地方政府通过降低边界地区环境规制力度策略性布局污染企业，以平衡经济增长和环境保护双目标。进一步研究发现，双目标约束的强弱程度会对垂直监管的边界污染治理效果产生影响。本文对于进一步完善我国的环境监管和治理体系及官员政绩考核体系具有重要的政策意义。
关键词：边界污染；双目标约束；环境分权；污染企业
Targets Constraint of Local Government and Boundary Pollution Governance
Zhou Yi, Li Lin, Zhe Zhuomiao
Abstract: Boundary pollution is a knotty problem in environmental governance all around the world, and is also a key target of China's pollution prevention and control campaign. This paper focuses on provincial boundary pollution, takes the implementation of the 11th Five-Year Plan as the natural experiment, bases on the data of Chinese polluting enterprises, discusses the influence of 11th Five-Year Plan on boundary pollution control, and analyzes the impact of local governments’ target constraints on boundary pollution. The study finds that: After the implementation of the 11th Five-Year Plan, an increase in the number of COD polluting enterprises and new entries was observed in counties along provincial borders, indicating a preference for these areas and a higher scale of pollution emission. Economic growth targets help to reduce the local governments' tendency to shift environmental burdens onto neighbors, facilitating better boundary pollution management. However, incorporating environmental protection into the performance evaluation of officials can intensify this shifting tendency, negatively impacting boundary pollution improvement. In the context of the dual targets of economic growth and environmental protection, provincial boundary regions become crucial in balancing these objectives, providing opportunities for strategic emission reductions by governments. The study also discovers that, compared to non-border counties, border counties exhibit lower thresholds for the entry of pollution enterprises, with local governments strategically positioning these enterprises in boundary areas by relaxing environmental regulations. This approach aims to strike a balance between the dual targets of economic growth and environmental protection. Further research suggests that the intensity of these dual targets influences the effectiveness of vertical regulatory approaches in boundary pollution control. This research offers significant policy implications for enhancing China's environmental regulatory and governance systems and the performance assessment of officials.
Keywords: Boundary Pollution; Dual Target Constraints; Environmental Decentralization; Pollution Enterprises
