新时代蓄滞洪补偿制度建构的逻辑转变与对策建议  

Logical transformation of constructing a flood storage and detention compensation system in China’s new era and its recommendations

作　　者：刘艳[1] LIU Yan(Institute of Innovation and Development Strategy,Anhui University,Hefei Anhui 230031,China)

机构地区：[1]安徽大学创新发展战略研究院,安徽合肥230031

出　　处：《中国人口·资源与环境》2023年第10期199-210,共12页China Population,Resources and Environment

基　　金：安徽省社会科学创新发展研究课题攻关研究项目“安徽沿淮行蓄洪功能区脱贫攻坚与生态发展补偿问题研究”(批准号:2019CX095)。

摘　　要：国家划分蓄滞洪区旨在构建一种特殊的损害防范机制,避免洪涝灾害损害结果扩散和经济损失加重,因而蓄滞洪区所在地政府往往都通过产业发展负面清单、高端基础设施投资约束等行政措施对功能区发展予以限制,蓄滞洪区要素进入壁垒较高,导致蓄滞洪区难脱不充分发展的困局,并由长期发展不充分不断加剧区内外发展不均衡,也即产生经济外部性问题。但是蓄滞洪功能运用本质上是蓄滞洪区生态价值的体现,如果蓄滞洪功能运用不能通过制度安排得以合理补偿,将不断会加剧经济外部性。建构于21世纪初的现行蓄滞洪补偿运用制度,所沿用的二元受偿、农本救助、有限施偿、财政承担和应急善后的制度逻辑,在补偿取得与蓄滞洪功能实际运用之间建立了一一对应关系,没有体现出蓄滞洪区作为功能区存在的生态环境价值,不能适应新时代经济社会高质量发展的要求,并不能称之为严格意义上的蓄滞洪补偿制度,更没有构建出蓄滞洪补偿制度体系。基于此,该研究以制度适应性效率理论为分析主线,从时间演进适应性、激励创新适应性和破解现实瓶颈适应性三个维度剖析现行蓄滞洪补偿制度,并综合运用环境价值理论和外部性理论为蓄滞洪区不充分、不平衡发展问题溯源,得出相关结论:新时代蓄滞洪制度构建必须遵从适应性效率评价逻辑,以外部性内在化来解决经济外部性问题,最关键就是要将蓄滞洪功能承载的生态环境价值列入制度考量,提升蓄滞洪区内生发展能力,促进蓄滞洪区公平发展权的落实。据此提出重构新时代蓄滞洪补偿制度的相关对策建议是要实现蓄滞洪补偿的五个转变,即由政策性补偿向立法性补偿、区域性补偿向功能性补偿、财政补偿向多元分类补偿、损害性后端补偿向促进性过程补偿、农本位补偿向综合性补偿。The national delineation of flood storage and detention areas aims to build a special damage prevention mechanism to avoid the spread of flood damage consequences and the aggravation of economic losses.Consequently,local governments in these areas often restrain their functional development through administrative measures such as negative lists of industrial development and constraints on investment in high-end infrastructure,which result in high barriers to the entry of factors in flood storage and detention areas,making it difficult for these areas to escape from the dilemma of inadequate development.Moreover,long-term insufficient development constantly aggravates the uneven development inside and outside the areas,i.e.,generating economic externalities.However,the application of the flood storage and detention functions is essentially a manifestation of the ecological value in these areas,and if their application cannot be reasonably compensated through institutional arrangements,economic externalities will be constantly aggravated.The current flood storage and detention compensation application system was established at the beginning of the 21st century and followed the system logic of binary compensation,agricultural-based relief,limited compensation,financial commitment,and emergency rehabilitation.It establishes a direct relationship between compensation acquisition and the actual utilization of flood storage and compensation functions.However,this system fails to fully consider the ecological and environmental value of flood storage and compensation areas as functional zones,so it cannot be called a flood storage and detention compensation system in the strict sense,let alone a flood storage and detention compensation institutional system.Based on this,this study adopts the institutional adaptability efficiency theory as the main analytical framework and examines the current flood storage and compensation system from three dimensions:temporal evolution adaptability,incentive innovation adaptability,and p

关 键 词：蓄滞洪补偿制度 贫困 逻辑转变 对策建议 

分 类 号：C939[经济管理—管理学]