The impact of latent policy synergy between cities on air pollution: An empirical analysis from China's 12,764 air policies

Abstract

Policy synergy plays a crucial role in managing regional air pollution. However, the current process of formulating collaborative policies often focuses too heavily on achieving optimal emission reduction outcomes, while neglecting the execution costs at the local level. This not only leads to a lack of coordination between existing governance measures and new policies but may also result in inefficient policy implementation and the wastage of administrative resources. To address this issue, we have conducted a thorough analysis of the latent interconnections in local governance and explored the possibility of formulating collaborative policies based on latent policy synergies. Utilizing a dataset of 12,764 policy documents from China spanning from 2000 to 2023, we employed unsupervised learning techniques and panel regression models to investigate the impacts of latent policy synergies among local governments. Our findings reveal that local governments initially relied on rigid command-and-control strategies to address air pollution, which were later enhanced with economic incentives like emissions trading and subsidies, thus broadening the scope of policy tools and improving compliance flexibility. Subsequently, as comprehensive monitoring networks were established, enabling real-time data acquisition and more accurate pollution assessments, the focus of policy efforts shifted towards a more integrated approach to regional air pollution management. This similar evolution facilitated latent policy synergy among local governments, leading to significant reductions in air pollution emissions. Notably, regions such as the Central Plains and coastal cities, characterized by their dense industrial activity and high energy consumption, have shown remarkable potential for collaborative efforts, achieving greater pollution control efficiencies. This study provides a valuable reference for the coordinated governance of air pollution policies.