工业用地出让、引资质量底线竞争与环境污染——基于252个地级市面板数据的经验分析

在工业化进程中,中国地方政府利用其掌控的土地资源进行大规模的招商引资活动,其中工业用地出让成为其招商引资的法宝。为了在激烈的竞争中获得某些优势,它们有时甚至不惜降低引资质量底线,从而引来一些高污染、高能耗的工业企业,并带来日益严重的环境污染问题。论文利用工业用地协议出让把工业用地出让、引资质量底线竞争与环境污染三者联系起来,并运用2004—2013年全国252个地级市的土地出让数据、经济数据、环境数据来分析工业用地出让对中国经济和环境的影响。通过协议出让面积对固定资产投资、工业总产值、GDP和地方财政收入进行回归来分析采用协议出让方式引入投资项目的质量;通过协议出让面积对工业二氧化硫和工业废水排放量进行回归来分析协议出让方式对当地环境污染的影响。实证结果表明,当期及前期的工业用地协议出让面积与固定资产投资、工业总产值、GDP、地方财政收入、税收等均呈负相关关系,与当地污染物的排放量呈正相关关系。换言之,地方政府若试图用协议出让方式增加工业用地出让面积来促进地方经济增长,将得不偿失,在短期内虽然对地方经济有一定的促进作用,但在长期内会对地方经济和环境造成危害。为了实现经济和生态环境的可持续发展,应完善地方政府的考核方式,调整以GDP为主的政绩考核机制,综合当地环境状况和除经济增长外的其他社会性服务指标作为考核指标;中央政府应该加强对地方政府的监管,严格规范工业用地出让,优化土地资源配置,提升引资质量;地方政府应加强对当地企业的监管,并严格执行环保标准。

Industrial land conveyance,the investment quality race in the bottom line and environmental pollution: an empirical analysis based on the panel data of the 252 Chinese prefecture-level cities

In the process of industrialization,Chinese local governments use the land resources which they have controlled to attract investments on a large scale.Among them,the industrial land conveyance has become a magic weapon to attract investment.In order to gain some advantages in the fierce competition,they sometimes even lower the bottom line of investment quality.These behaviors introduce some industrial companies of high pollution,and high energy consumption,which brings serious environmental pollution problems.By using industrial land transfer agreements which link the industrial land conveyance,the investment quality race in the bottom line and environmental pollution,the paper,according to the data about land conveyance,economy and environment in 252 Chinese prefecture-level cities from 2004 to 2013,analyzes the impact of industrial land conveyance on Chinese economy and environment.By the regression of transferred area in the agreements to fixed assets investment,gross value of industrial output,GDP,and local fiscal revenue,we analyze the quality of investment projects which are introduced through transfer agreement.By the regression of transferred area in the agreements to industrial sulfur dioxide emissions and industrial waste water discharge,we can analyze the impact of transfer agreement on the local environment pollution.The empirical results show that transferred area of the industrial land in the agreements in the current and previous period has a negative correlation to fixed-asset investment,gross industrial output value,GDP,fiscal revenue and tax but a positive correlation to the local pollutant emissions.The results show that the transfer of industrial land can damage the local long-term economic development and fiscal revenue,and increase the emission of local pollutants.Namely,if local govemments want to promote economic growth by increasing transferred area in agreement,these behaviors will do more harm than good and bring harm to the local economy and environment in the long term,although in the short term it has a certain effect on promoting the local economy.In order to realize the sustainable development of economy and environmental sustainability,the central government should perfect the evaluation of local government performance,adjust the evaluation mechanism which is based on the GDP performance simply,consider local environmental conditions and include other relevant social services indicators which may not so closely link with economic development.The central government should strengthen the supervision of local government,strictly regulate the use of industrial land,optimize the allocation of land resources,improve the quality of projects introduced through investment,strengthen the supervision of local companies,and enforce environmental standards strictly.