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徐州、淮阴地区在汉、魏、唐、宋时期，一直是发达的农业经济区之一，明初朱元璋定都南京，这里既是辅之地，又是明政权起家的根据地。明政府实施了一系列恢复发展农业生产的有效政策，农业生产发展较快，农业人口相应增加。明成祖迁都北京，庞大的中央机构和军需民食仍赖南方供应，于是产生了破坏不堪的运道与每年四百万石漕运的矛盾。为解决这个矛盾，明政府制定出“治黄保漕”的总方针。很明显“保漕”是根本目的，“治黄”是达到目的手段，因此在实施中不可避免地违反综合治水的科学规律，造成黄淮下游的徐淮及周边地方自然灾害严重、耕地减少、农业人口下降，对农业经济产生严重制约。
In the Han, Wei, Tang and Song Dynasties, Xuzhou and Huaiyin areas were always one of the developed agricultural economic zones. At the beginning of the Ming Dynasty, Emperor Zhu Yuanzhang was capitalized in Nanjing. It is both a supplement land and a base for the founding of the Ming regime. The Ming government implemented a series of effective policies for the restoration and development of agricultural production. The agricultural production developed rapidly with a corresponding increase in the agricultural population. Ming Cheng Zu moved to Beijing. The huge central government and civilian needs continued to supply the South. As a result, there was a contradiction between the unprofitable Canal Road and the four million stone transportation each year. In order to solve this contradiction, the government formulated the general principle of “governing the Huangbao River.” Obviously, “guaranteeing water conservancy” is the fundamental purpose. “Governance of the Yellow Sea” is a means of achieving the goal. Therefore, it inevitably violates the scientific laws of integrated water control in implementation, resulting in serious natural disasters and less farmland in Xuhuai and its surrounding areas, The decline of agricultural population has serious constraints on the agricultural economy.