文章來源：產(chan)權局 發布時(shi)間：2018-03-29
長期(qi)以(yi)來，我(wo)(wo)國(guo)縣及縣以(yi)下(xia)的(de)(de)廣(guang)大農(nong)村(cun)地(di)區形成(cheng)了三類主體(ti)從事供(gong)電(dian)(dian)(dian)(dian)(dian)的(de)(de)局面(mian)，即國(guo)家電(dian)(dian)(dian)(dian)(dian)網(wang)公司和(he)南方電(dian)(dian)(dian)(dian)(dian)網(wang)公司（以(yi)下(xia)統稱中央(yang)電(dian)(dian)(dian)(dian)(dian)網(wang)企業(ye)(ye)）全資的(de)(de)“直供(gong)直管(guan)”供(gong)電(dian)(dian)(dian)(dian)(dian)企業(ye)(ye)、由(you)中央(yang)電(dian)(dian)(dian)(dian)(dian)網(wang)企業(ye)(ye)“代(dai)管(guan)”的(de)(de)縣國(guo)有供(gong)電(dian)(dian)(dian)(dian)(dian)企業(ye)(ye)、與中央(yang)電(dian)(dian)(dian)(dian)(dian)網(wang)企業(ye)(ye)既無產權關(guan)系也無管(guan)理(li)(li)關(guan)系的(de)(de)其他“自(zi)供(gong)自(zi)管(guan)”企業(ye)(ye)。這一(yi)農(nong)電(dian)(dian)(dian)(dian)(dian)體(ti)制導致城鄉電(dian)(dian)(dian)(dian)(dian)網(wang)之(zhi)間難以(yi)真正(zheng)實現統籌規劃和(he)建設，加之(zhi)部分“代(dai)管(guan)”和(he)“自(zi)供(gong)自(zi)管(guan)”企業(ye)(ye)自(zi)我(wo)(wo)積累能力差，農(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)投資欠(qian)賬多、管(guan)理(li)(li)基礎薄(bo)弱，農(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)發展不平衡的(de)(de)矛盾日益突出(chu)，成(cheng)為制約農(nong)村(cun)經濟社會(hui)發展的(de)(de)短板之(zhi)一(yi)。
為貫(guan)徹落實(shi)國(guo)(guo)家農(nong)(nong)村(cun)電(dian)(dian)力(li)體制改革(ge)部署，補(bu)齊農(nong)(nong)村(cun)電(dian)(dian)網(wang)的短板，近年來，國(guo)(guo)務院(yuan)國(guo)(guo)資(zi)(zi)委指導(dao)中央(yang)電(dian)(dian)網(wang)企業積極爭(zheng)取地(di)方(fang)政(zheng)府的支持，克服地(di)方(fang)農(nong)(nong)電(dian)(dian)企業普遍經營效(xiao)益差、歷史(shi)負擔沉重、人(ren)員安(an)置(zhi)壓力(li)大等困(kun)難，通過直接劃(hua)轉(zhuan)、先(xian)代(dai)管再(zai)劃(hua)轉(zhuan)、先(xian)合資(zi)(zi)控股再(zai)劃(hua)轉(zhuan)等路徑(jing)，累計上(shang)收29個(ge)省（自(zi)治(zhi)區）農(nong)(nong)電(dian)(dian)企業1056戶，涉及(ji)資(zi)(zi)產(chan)總(zong)額3276億元、凈資(zi)(zi)產(chan)977億元。目前(qian)，全(quan)國(guo)(guo)2163個(ge)涉及(ji)農(nong)(nong)網(wang)的行政(zheng)縣區中，1979個(ge)已實(shi)現(xian)“直供直管”。絕大部分(fen)縣域農(nong)(nong)村(cun)電(dian)(dian)網(wang)都(dou)納入了(le)全(quan)國(guo)(guo)電(dian)(dian)網(wang)“大盤(pan)子”，從(cong)根(gen)本上(shang)破除(chu)了(le)制約農(nong)(nong)村(cun)電(dian)(dian)網(wang)發(fa)展(zhan)的體制障(zhang)礙，“大、小電(dian)(dian)網(wang)”真正實(shi)現(xian)了(le)統(tong)(tong)一規劃(hua)、統(tong)(tong)一建設、統(tong)(tong)一運營、統(tong)(tong)一管理(li)。
一(yi)(yi)是推進(jin)無(wu)(wu)電(dian)(dian)(dian)(dian)地區(qu)電(dian)(dian)(dian)(dian)力建(jian)(jian)設，解決了無(wu)(wu)電(dian)(dian)(dian)(dian)人口的(de)用(yong)電(dian)(dian)(dian)(dian)問題。中央電(dian)(dian)(dian)(dian)網企業克服惡劣(lie)的(de)地質(zhi)和(he)交通條件，加大資(zi)金投(tou)入，探索“發(fa)供一(yi)(yi)體”的(de)特(te)殊供電(dian)(dian)(dian)(dian)模式(shi)，累(lei)計完成無(wu)(wu)電(dian)(dian)(dian)(dian)地區(qu)電(dian)(dian)(dian)(dian)力建(jian)(jian)設投(tou)資(zi)438億元，解決了248萬戶無(wu)(wu)電(dian)(dian)(dian)(dian)家庭、982萬無(wu)(wu)電(dian)(dian)(dian)(dian)人口的(de)用(yong)電(dian)(dian)(dian)(dian)問題。
二(er)是(shi)提高供(gong)電(dian)(dian)(dian)(dian)能力(li)和質(zhi)量，為(wei)脫貧(pin)(pin)攻堅(jian)奠(dian)定堅(jian)實(shi)(shi)基(ji)礎。“十二(er)五”期間(jian)，中(zhong)央(yang)電(dian)(dian)(dian)(dian)網(wang)企(qi)業累計完成農(nong)網(wang)投資6048億元(yuan)，農(nong)村(cun)電(dian)(dian)(dian)(dian)網(wang)戶(hu)(hu)均配電(dian)(dian)(dian)(dian)容量增加70%，解決了中(zhong)西(xi)部地區(qu)45個(ge)縣域(yu)電(dian)(dian)(dian)(dian)網(wang)“孤網(wang)運(yun)行”問題、148個(ge)縣域(yu)電(dian)(dian)(dian)(dian)網(wang)與(yu)主網(wang)聯系薄弱問題，農(nong)村(cun)供(gong)電(dian)(dian)(dian)(dian)可靠率(lv)達到99.7%以上，用戶(hu)(hu)年(nian)均停電(dian)(dian)(dian)(dian)時間(jian)由2010年(nian)的(de)30小(xiao)時以上縮短至(zhi)15小(xiao)時左右，農(nong)村(cun)電(dian)(dian)(dian)(dian)網(wang)供(gong)電(dian)(dian)(dian)(dian)能力(li)和質(zhi)量顯(xian)著提升。對供(gong)電(dian)(dian)(dian)(dian)區(qu)域(yu)內567個(ge)國家級貧(pin)(pin)困縣農(nong)網(wang)投資1622億元(yuan)，貧(pin)(pin)困農(nong)村(cun)地區(qu)電(dian)(dian)(dian)(dian)力(li)“卡脖子”問題得到有效治理，過(guo)去困擾(rao)農(nong)村(cun)地區(qu)發展的(de)頻繁(fan)停電(dian)(dian)(dian)(dian)、電(dian)(dian)(dian)(dian)壓(ya)不穩現象得到根(gen)本扭轉，為(wei)脫貧(pin)(pin)攻堅(jian)提供(gong)了堅(jian)實(shi)(shi)電(dian)(dian)(dian)(dian)力(li)保障。
三(san)是統籌協(xie)調全網(wang)資(zi)源(yuan)，農(nong)村電(dian)(dian)網(wang)的(de)(de)抗風(feng)險能力(li)大幅提(ti)升。中(zhong)央(yang)電(dian)(dian)網(wang)企業(ye)發揮全網(wang)一(yi)盤棋的(de)(de)優勢，在強化農(nong)村電(dian)(dian)網(wang)的(de)(de)技(ji)術防災能力(li)建(jian)(jian)設(she)的(de)(de)同時(shi)，依托自身較為(wei)完善(shan)的(de)(de)管控(kong)體系和應急機制，使(shi)農(nong)村電(dian)(dian)網(wang)的(de)(de)抗災、救災和災后恢(hui)復(fu)能力(li)顯著提(ti)高(gao)。如臺風(feng)“莫蘭蒂(di)”、“鯰魚”短時(shi)間內連續(xu)登陸(lu)福建(jian)(jian)，造成疊加災害影響，在道路沖毀、通訊(xun)中(zhong)斷等(deng)不利條件下，中(zhong)央(yang)電(dian)(dian)網(wang)企業(ye)協(xie)調電(dian)(dian)力(li)搶修隊(dui)伍和資(zi)源(yuan)，僅用(yong)了(le)常規搶修時(shi)間的(de)(de)三(san)分之一(yi)就(jiu)全面恢(hui)復(fu)了(le)數百萬受災用(yong)戶的(de)(de)供電(dian)(dian)，為(wei)當地快(kuai)速開展救災和災后重建(jian)(jian)提(ti)供了(le)有(you)力(li)保障。
四是加(jia)強黨(dang)的(de)建(jian)設，暢通(tong)基層電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)服務(wu)(wu)(wu)群(qun)眾的(de)“最(zui)后一公里(li)”。農村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)是整(zheng)個電(dian)(dian)(dian)(dian)網(wang)(wang)的(de)“神(shen)經末梢”，針對部分農電(dian)(dian)(dian)(dian)企業(ye)黨(dang)的(de)建(jian)設存在弱(ruo)化(hua)(hua)、淡化(hua)(hua)、虛(xu)化(hua)(hua)、邊緣化(hua)(hua)的(de)問題，中央電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)按(an)照“全面覆(fu)蓋(gai)、有效覆(fu)蓋(gai)”的(de)要(yao)求，與產權劃(hua)轉同步健全黨(dang)的(de)組織，將位(wei)于供電(dian)(dian)(dian)(dian)一線的(de)每個班組、農村(cun)基層的(de)每個服務(wu)(wu)(wu)點都建(jian)成聯系群(qun)眾、服務(wu)(wu)(wu)群(qun)眾的(de)“前言哨”和(he)“連心(xin)橋”。如國(guo)家(jia)電(dian)(dian)(dian)(dian)網(wang)(wang)四川(chuan)資陽公司基層服務(wu)(wu)(wu)點發(fa)現(xian)春(chun)(chun)節(jie)(jie)期間農村(cun)外(wai)出務(wu)(wu)(wu)工人員(yuan)集中返鄉(xiang)，用電(dian)(dian)(dian)(dian)負荷急(ji)劇增加(jia)，容易出現(xian)電(dian)(dian)(dian)(dian)壓(ya)不(bu)穩、斷電(dian)(dian)(dian)(dian)等情(qing)況，他(ta)們通(tong)過提前掌握外(wai)出務(wu)(wu)(wu)工人員(yuan)返鄉(xiang)時間，安排移動發(fa)電(dian)(dian)(dian)(dian)機和(he)變壓(ya)器(qi)，確保(bao)群(qun)眾春(chun)(chun)節(jie)(jie)期間用電(dian)(dian)(dian)(dian)需(xu)求。
目前我國正在推(tui)進新一(yi)輪電力體制改(gai)革(ge)，國企國資改(gai)革(ge)也(ye)進入了(le)深(shen)入推(tui)進階段，為(wei)進一(yi)步鞏(gong)固農網改(gai)革(ge)成果，提(ti)(ti)升服務“三(san)農”水平，提(ti)(ti)出如下建議：
一(yi)是進一(yi)步健全電(dian)(dian)(dian)(dian)(dian)力(li)普遍(bian)(bian)服(fu)(fu)務(wu)(wu)補(bu)(bu)償機(ji)制。我國(guo)大多農(nong)(nong)(nong)(nong)村地(di)區特別是西部(bu)、東(dong)北一(yi)些地(di)區，地(di)廣人稀，經濟社(she)會發(fa)展(zhan)相對(dui)滯后(hou)，農(nong)(nong)(nong)(nong)村供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)電(dian)(dian)(dian)(dian)(dian)量規(gui)模小，供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)業(ye)務(wu)(wu)點(dian)多面廣線長，單位輸(shu)配電(dian)(dian)(dian)(dian)(dian)成(cheng)本(ben)(ben)(ben)高，供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)收入和成(cheng)本(ben)(ben)(ben)不(bu)匹配，具有(you)(you)典型的(de)(de)普遍(bian)(bian)服(fu)(fu)務(wu)(wu)屬性。一(yi)直以來中央電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)(wang)企業(ye)通(tong)過(guo)工(gong)業(ye)和城市用(yong)戶補(bu)(bu)貼農(nong)(nong)(nong)(nong)村用(yong)戶的(de)(de)交叉(cha)(cha)補(bu)(bu)貼方式支持(chi)農(nong)(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)(wang)發(fa)展(zhan)。如2015年(nian)，南方電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)(wang)公司260家(jia)(jia)獨(du)立核(he)算的(de)(de)農(nong)(nong)(nong)(nong)電(dian)(dian)(dian)(dian)(dian)企業(ye)有(you)(you)65家(jia)(jia)虧(kui)損，占25%，如果剔除“電(dian)(dian)(dian)(dian)(dian)價交叉(cha)(cha)補(bu)(bu)貼”等扶持(chi)因素，虧(kui)損面將擴(kuo)大到92%。建(jian)(jian)議在(zai)新一(yi)輪電(dian)(dian)(dian)(dian)(dian)力(li)體制改革中，一(yi)方面進一(yi)步健全普遍(bian)(bian)服(fu)(fu)務(wu)(wu)補(bu)(bu)償機(ji)制，切實(shi)保障各類交叉(cha)(cha)補(bu)(bu)貼資金來源(yuan)，并探(tan)索在(zai)國(guo)家(jia)(jia)層(ceng)面建(jian)(jian)立普遍(bian)(bian)服(fu)(fu)務(wu)(wu)基金，專(zhuan)項用(yong)于“老少(shao)邊窮(qiong)”地(di)區電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)(wang)企業(ye)的(de)(de)電(dian)(dian)(dian)(dian)(dian)力(li)普遍(bian)(bian)服(fu)(fu)務(wu)(wu)成(cheng)本(ben)(ben)(ben)補(bu)(bu)償。另(ling)一(yi)方面在(zai)政(zheng)府(fu)價格部(bu)門(men)按(an)照“準許(xu)成(cheng)本(ben)(ben)(ben)加(jia)合理收益”機(ji)制核(he)定(ding)輸(shu)配電(dian)(dian)(dian)(dian)(dian)價時，針(zhen)對(dui)農(nong)(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)(wang)運營(ying)發(fa)展(zhan)困難(nan)的(de)(de)特殊情(qing)況(kuang)，適當提(ti)高農(nong)(nong)(nong)(nong)網(wang)(wang)(wang)資產的(de)(de)定(ding)價準許(xu)成(cheng)本(ben)(ben)(ben)和收益水平(ping)，支持(chi)和保障農(nong)(nong)(nong)(nong)網(wang)(wang)(wang)的(de)(de)正常運營(ying)和發(fa)展(zhan)需要。
二是(shi)進一步理順(shun)農(nong)(nong)村電(dian)(dian)(dian)(dian)力管(guan)(guan)理體(ti)制(zhi)。目前，少數地方(fang)仍(reng)由(you)“自(zi)供自(zi)管(guan)(guan)”農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)(qi)業(ye)(ye)負責(ze)供電(dian)(dian)(dian)(dian)，造成農(nong)(nong)村電(dian)(dian)(dian)(dian)網的(de)(de)實(shi)際分(fen)(fen)割，影響了(le)電(dian)(dian)(dian)(dian)網的(de)(de)整體(ti)統一規(gui)(gui)劃(hua)和(he)(he)建(jian)設(she)；還有(you)些(xie)地方(fang)新成立(li)了(le)“自(zi)供自(zi)管(guan)(guan)”企(qi)(qi)業(ye)(ye)，專(zhuan)門負責(ze)縣域內的(de)(de)工業(ye)(ye)園區(qu)、工業(ye)(ye)企(qi)(qi)業(ye)(ye)等存量(liang)用(yong)電(dian)(dian)(dian)(dian)大(da)戶(hu)(hu)，無(wu)序建(jian)設(she)高等級輸電(dian)(dian)(dian)(dian)網絡(luo)。這樣容易造成重復建(jian)設(she)、投資浪費，也(ye)會形成“用(yong)電(dian)(dian)(dian)(dian)大(da)戶(hu)(hu)人(ren)人(ren)搶，普通用(yong)戶(hu)(hu)無(wu)人(ren)管(guan)(guan)”的(de)(de)局(ju)面。建(jian)議在新一輪(lun)電(dian)(dian)(dian)(dian)力體(ti)制(zhi)改革中(zhong)，考慮電(dian)(dian)(dian)(dian)網具有(you)自(zi)然壟斷屬性、尊重農(nong)(nong)村電(dian)(dian)(dian)(dian)網發(fa)展的(de)(de)客觀規(gui)(gui)律(lv)，從更(geng)有(you)利于做(zuo)好農(nong)(nong)村供電(dian)(dian)(dian)(dian)服務(wu)、更(geng)有(you)利于促進農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)(qi)業(ye)(ye)持續健康發(fa)展的(de)(de)角度出發(fa)，支持和(he)(he)推動中(zhong)央電(dian)(dian)(dian)(dian)網企(qi)(qi)業(ye)(ye)充分(fen)(fen)發(fa)揮規(gui)(gui)模優勢和(he)(he)專(zhuan)業(ye)(ye)優勢，采取產權劃(hua)轉(zhuan)等多種(zhong)方(fang)式(shi)，進一步理順(shun)農(nong)(nong)村電(dian)(dian)(dian)(dian)力管(guan)(guan)理體(ti)制(zhi)，提供大(da)電(dian)(dian)(dian)(dian)網延伸服務(wu)，實(shi)現電(dian)(dian)(dian)(dian)網統一規(gui)(gui)劃(hua)、統一建(jian)設(she)、統一運營(ying)、統一管(guan)(guan)理，保障好農(nong)(nong)村地區(qu)供電(dian)(dian)(dian)(dian)。
三是推動(dong)建立支(zhi)(zhi)持縣(xian)域(yu)(yu)經(jing)(jing)濟發(fa)展(zhan)的(de)財(cai)政稅(shui)(shui)收機(ji)制。為支(zhi)(zhi)持農村(cun)電網發(fa)展(zhan)，履行(xing)電網企(qi)(qi)業(ye)(ye)提供(gong)普遍服(fu)務的(de)職責，中(zhong)央電網企(qi)(qi)業(ye)(ye)認真落實國務院及國資委“瘦身健體(ti)”工(gong)作要求，穩步推進(jin)縣(xian)級(ji)供(gong)電企(qi)(qi)業(ye)(ye)“子改(gai)分”工(gong)作。縣(xian)級(ji)供(gong)電企(qi)(qi)業(ye)(ye)“子改(gai)分”后，原(yuan)本屬于縣(xian)級(ji)地方財(cai)政收入來(lai)源的(de)縣(xian)級(ji)供(gong)電企(qi)(qi)業(ye)(ye)所(suo)得稅(shui)(shui)將(jiang)(jiang)調(diao)整至各省級(ji)電網公司本部(bu)所(suo)在(zai)地繳納，有(you)關縣(xian)級(ji)區域(yu)(yu)現有(you)利益可能受(shou)到較大(da)影響。為支(zhi)(zhi)持縣(xian)域(yu)(yu)經(jing)(jing)濟發(fa)展(zhan)，建議采(cai)取財(cai)政轉移(yi)支(zhi)(zhi)付等方式，將(jiang)(jiang)省級(ji)電網公司所(suo)繳稅(shui)(shui)額在(zai)省、縣(xian)兩級(ji)合理分配。