作者：李建人
作者介绍：南开大学法学院副教授，法学博士
出版日期：2026年4月9日
内容提要 巨灾风险管理是国家治理的重要课题。巨灾保险是当代国际社会用来分散巨灾损失的主要制度，我国应当基于公有制经济基础和自然灾害直接经济损失严重等基本国情，秉持新型举国体制，借鉴吸收域外巨灾商业保险立法的成功经验，探寻建构适合我国国情的巨灾社会保险制度。巨灾保险的学理基础应当是公共安全理论，不是公共产品理论；制度属性应当是社会保险，不是商业保险。我国巨灾保险制度的构建应以《社会保险法》为基本法，各级政府应当承担主要责任，实行综合的巨灾保险和强制保险模式。抗灾预备费是建构巨灾社会保险制度的财政基础。政府应当按照《预算法》的规定，足额提取抗灾预备费。同时，合理确定央地政府之间、政府与居民之间巨灾损失的分担责任和比例，探索改革抗灾预备费管理制度，强化巨灾保险赔付能力和水平。
关键词 巨灾保险制度 公共安全 社会保险 抗灾预备费
Abstract: Catastrophe risk management is an important topic in national governance. Catastrophe insurance is the main system for sharing catastrophe losses in contemporary international society. Based on the basic national conditions, such as the economic foundation of public ownership and the severe direct economic losses caused by natural disasters, we should adhere to the new national system, draw on the successful experience of legislation on commercial catastrophe insurance in the world, and explore the construction of a catastrophe social insurance system suitable for China’s national conditions. The theoretical basis of catastrophe insurance should be public security theory, not public goods theory. Its institutional attribute should be social insurance, not commercial insurance. The construction of the Chinese catastrophe insurance system should be based on the Social Insurance Law as the basic law, and governments at all levels should bear the main responsibility. A comprehensive catastrophe insurance and compulsory insurance model should be implemented. The disaster reserve funds are the financial basis for the construction of a catastrophe social insurance system. Governments should extract the disaster reserve funds in full according to the Budget Law, reasonably determine the responsibility and proportion of sharing catastrophe losses between the central and local governments and between the government and residents, explore the reform of the management system of the disaster reserve funds, and enhance the compensation capacity and level of catastrophe insurance.