中国干旱区水资源管理制度的结构优化与体系完善——基于结构功能分析方法

Structural Optimization and System Improvement of Water Resource Management System in Arid Areas of China——Based on Structural Function Analysis Approach

中国水资源总量丰富,但目前仍存在人均水资源占有量较低、水资源时空分布不均等问题,这些问题在干旱区更为明显。中国目前正实行最严格水资源管理制度,尽管该制度发挥了一定成效,但仍无法有效解决干旱区面临的水资源难题。从制度层面出发,运用结构-功能分析方法,归纳总结并分析中国干旱区涉及的水资源管理政策法律文件。分析结果表明:①中国干旱区水资源管理制度存在规范水资源利用行为、提高水资源利用效率的正功能和推动节水技术创新、促进可持续发展的潜正功能,以及水资源分配可能导致权力固化和供需不平衡,管理制度会增加企业和个人成本负担的潜负功能。②中国干旱区水资源管理制度存在纵向的立法规范结构约束、横向的水资源管理制度结构约束以及横纵结合的职权分配结构约束。进一步分析表明,产生上述结构约束的原因在于水资源管理立法纵向残缺、水资源管理制度横向配置局限以及水资源管理制度运行中的责任分配不明,由此导致节水领域制度落实困难、水资源分配不合理以及再生水利用效率偏低、水资源管理主体职责交叉重叠的问题,制约水资源管理制度体系的运行。因此,针对上述问题,应当制定专门性节水立法、完善干旱区水资源管理制度和明确水资源管理的责权分配,以期达到优化中国干旱区水资源管理制度的结构障碍及制度缺陷,消除其潜负功能的效果。

China is rich in total water resources,but there are still problems such as low per capita water resources and uneven spatial and temporal distribution of water resources,which are more obvious in arid areas.China is currently implementing the most stringent water re⁃source management system,which,despite its effectiveness to a certain degree,has not been able to effectively address the water resource challenges faced by arid zones.This paper summarizes and analyzes the water resources management policies and legal documents involved in China′s arid zones from the institutional level,using structural-functional analysis method.The results of the analysis show that:①the water resources management system in China′s arid zones has a positive function of regulating water resources utilization behavior and im⁃proving water resources utilization efficiency,and a latent positive function of promoting water-saving technological innovation and sustain⁃able development,as well as a latent negative function of water resources allocation that may lead to the solidification of power and an imbal⁃ance in supply and demand,and that the management system increases the cost burden on enterprises and individuals.②China′s water re⁃sources management system in arid zones has a vertical structure constraint of legislative norms,a horizontal structure constraint of water re⁃sources management systems,and a combined horizontal-and-vertical structure constraint of authority allocation.Further analysis shows that the structural constraints mentioned above are due to the vertical handicap of the water resources management legislation,the limitations of the horizontal configuration of the water resources management system,and the unclear distribution of responsibilities in the operation of the water resources management system,which leads to difficulties in the implementation of the system in the field of water conservation,ir⁃rational allocation of water resources,and the low efficiency of the utilization of recycled water,as well as the problem of overlapping respon⁃sibilities among the main bodies of the water resources management,thus restricting the operation of the system of water resources manage⁃ment.Therefore,in response to the above problems,special water conservation legislation should be formulated,the water resources manage⁃ment system in arid zones should be improved,and the distribution of responsibilities and rights in water resources management should be clarified,with a view to optimizing the structural obstacles and systemic deficiencies of China′s water resources management system in arid zones and eliminating the effects of its potential negative functions.