文章來(lai)源：產權局 發布時間：2018-03-29
長期以來(lai)，我國縣及縣以下(xia)的(de)(de)(de)廣大農(nong)村(cun)地區形成了三類(lei)主(zhu)體從事供(gong)(gong)電(dian)的(de)(de)(de)局面，即國家電(dian)網(wang)(wang)(wang)公(gong)司和(he)南方電(dian)網(wang)(wang)(wang)公(gong)司（以下(xia)統稱中(zhong)央(yang)電(dian)網(wang)(wang)(wang)企(qi)業(ye)）全資的(de)(de)(de)“直供(gong)(gong)直管”供(gong)(gong)電(dian)企(qi)業(ye)、由中(zhong)央(yang)電(dian)網(wang)(wang)(wang)企(qi)業(ye)“代(dai)管”的(de)(de)(de)縣國有(you)供(gong)(gong)電(dian)企(qi)業(ye)、與中(zhong)央(yang)電(dian)網(wang)(wang)(wang)企(qi)業(ye)既無產權關系也無管理關系的(de)(de)(de)其他“自(zi)供(gong)(gong)自(zi)管”企(qi)業(ye)。這一農(nong)電(dian)體制導致(zhi)城(cheng)鄉電(dian)網(wang)(wang)(wang)之間難(nan)以真正(zheng)實(shi)現統籌規劃和(he)建(jian)設，加(jia)之部分“代(dai)管”和(he)“自(zi)供(gong)(gong)自(zi)管”企(qi)業(ye)自(zi)我積累能力差，農(nong)村(cun)電(dian)網(wang)(wang)(wang)投資欠賬多、管理基(ji)礎薄(bo)弱，農(nong)村(cun)電(dian)網(wang)(wang)(wang)發展(zhan)不平衡的(de)(de)(de)矛盾日益突出，成為制約農(nong)村(cun)經濟社會發展(zhan)的(de)(de)(de)短(duan)板(ban)之一。
為貫徹落實國(guo)(guo)家農(nong)(nong)村電力(li)體(ti)制改革部(bu)署，補齊農(nong)(nong)村電網的(de)(de)短板(ban)，近年(nian)來，國(guo)(guo)務院國(guo)(guo)資(zi)(zi)委(wei)指導中央電網企(qi)(qi)業積極(ji)爭取地(di)方(fang)政府的(de)(de)支持，克服地(di)方(fang)農(nong)(nong)電企(qi)(qi)業普(pu)遍經營(ying)效益差、歷史(shi)負擔沉重、人員安(an)置壓力(li)大(da)等(deng)(deng)困難，通過直接劃(hua)轉、先(xian)(xian)代管再(zai)劃(hua)轉、先(xian)(xian)合資(zi)(zi)控股再(zai)劃(hua)轉等(deng)(deng)路徑(jing)，累計上(shang)收29個(ge)省（自治(zhi)區(qu)）農(nong)(nong)電企(qi)(qi)業1056戶(hu)，涉及資(zi)(zi)產總(zong)額(e)3276億(yi)元(yuan)、凈資(zi)(zi)產977億(yi)元(yuan)。目前(qian)，全國(guo)(guo)2163個(ge)涉及農(nong)(nong)網的(de)(de)行政縣(xian)(xian)區(qu)中，1979個(ge)已實現(xian)“直供直管”。絕(jue)大(da)部(bu)分縣(xian)(xian)域農(nong)(nong)村電網都納入(ru)了全國(guo)(guo)電網“大(da)盤子”，從根本(ben)上(shang)破除了制約農(nong)(nong)村電網發展的(de)(de)體(ti)制障(zhang)礙，“大(da)、小(xiao)電網”真(zhen)正實現(xian)了統(tong)一規劃(hua)、統(tong)一建(jian)設(she)、統(tong)一運營(ying)、統(tong)一管理(li)。
一是推進(jin)無電(dian)(dian)地區電(dian)(dian)力(li)建設，解決了(le)無電(dian)(dian)人口(kou)(kou)的(de)用(yong)電(dian)(dian)問題。中央(yang)電(dian)(dian)網企(qi)業克服(fu)惡劣的(de)地質和交(jiao)通條件(jian)，加(jia)大資金投入，探索“發(fa)供一體”的(de)特(te)殊供電(dian)(dian)模(mo)式，累(lei)計(ji)完成無電(dian)(dian)地區電(dian)(dian)力(li)建設投資438億元，解決了(le)248萬戶無電(dian)(dian)家庭、982萬無電(dian)(dian)人口(kou)(kou)的(de)用(yong)電(dian)(dian)問題。
二(er)是提(ti)高(gao)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)能力和質(zhi)量(liang)(liang)，為脫貧攻堅(jian)奠定堅(jian)實基礎(chu)。“十二(er)五”期間(jian)，中(zhong)央電(dian)(dian)(dian)網(wang)(wang)企業累(lei)計完成農(nong)網(wang)(wang)投資6048億元，農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)戶(hu)均配電(dian)(dian)(dian)容量(liang)(liang)增(zeng)加70%，解決了中(zhong)西部地(di)區(qu)(qu)45個(ge)縣域(yu)(yu)電(dian)(dian)(dian)網(wang)(wang)“孤網(wang)(wang)運行”問(wen)題(ti)、148個(ge)縣域(yu)(yu)電(dian)(dian)(dian)網(wang)(wang)與主網(wang)(wang)聯系薄弱(ruo)問(wen)題(ti)，農(nong)村(cun)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)可靠率達到(dao)(dao)99.7%以上，用戶(hu)年(nian)均停(ting)(ting)電(dian)(dian)(dian)時(shi)間(jian)由2010年(nian)的30小(xiao)時(shi)以上縮短至15小(xiao)時(shi)左右，農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)能力和質(zhi)量(liang)(liang)顯著提(ti)升。對供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)區(qu)(qu)域(yu)(yu)內567個(ge)國(guo)家級(ji)貧困縣農(nong)網(wang)(wang)投資1622億元，貧困農(nong)村(cun)地(di)區(qu)(qu)電(dian)(dian)(dian)力“卡脖子”問(wen)題(ti)得到(dao)(dao)有效治理，過去困擾農(nong)村(cun)地(di)區(qu)(qu)發展的頻繁停(ting)(ting)電(dian)(dian)(dian)、電(dian)(dian)(dian)壓不穩(wen)現象(xiang)得到(dao)(dao)根(gen)本扭轉，為脫貧攻堅(jian)提(ti)供(gong)(gong)(gong)(gong)了堅(jian)實電(dian)(dian)(dian)力保障。
三(san)是統籌協調(diao)全(quan)網(wang)(wang)(wang)資(zi)源(yuan)，農(nong)村(cun)電(dian)網(wang)(wang)(wang)的(de)(de)抗風(feng)險能(neng)力(li)大幅提(ti)升。中央電(dian)網(wang)(wang)(wang)企業(ye)發揮(hui)全(quan)網(wang)(wang)(wang)一(yi)盤棋(qi)的(de)(de)優勢，在(zai)強化農(nong)村(cun)電(dian)網(wang)(wang)(wang)的(de)(de)技術防災(zai)(zai)能(neng)力(li)建(jian)設的(de)(de)同時，依托自身(shen)較為(wei)完善的(de)(de)管控體(ti)系和應急機制，使農(nong)村(cun)電(dian)網(wang)(wang)(wang)的(de)(de)抗災(zai)(zai)、救災(zai)(zai)和災(zai)(zai)后恢(hui)復能(neng)力(li)顯著(zhu)提(ti)高。如臺風(feng)“莫蘭蒂”、“鯰魚”短時間(jian)內連續登陸福建(jian)，造(zao)成(cheng)疊加災(zai)(zai)害(hai)影響，在(zai)道路沖毀、通訊(xun)中斷(duan)等不(bu)利條件下(xia)，中央電(dian)網(wang)(wang)(wang)企業(ye)協調(diao)電(dian)力(li)搶(qiang)修隊伍和資(zi)源(yuan)，僅(jin)用了常規(gui)搶(qiang)修時間(jian)的(de)(de)三(san)分之一(yi)就全(quan)面恢(hui)復了數百(bai)萬受災(zai)(zai)用戶的(de)(de)供(gong)電(dian)，為(wei)當地快速開展救災(zai)(zai)和災(zai)(zai)后重(zhong)建(jian)提(ti)供(gong)了有力(li)保障。
四是加強黨(dang)的(de)(de)建設，暢通基層(ceng)電(dian)(dian)(dian)網(wang)企業(ye)服(fu)(fu)務(wu)(wu)群眾(zhong)的(de)(de)“最(zui)后一公里”。農村電(dian)(dian)(dian)網(wang)是整個(ge)電(dian)(dian)(dian)網(wang)的(de)(de)“神經(jing)末梢(shao)”，針對(dui)部分(fen)農電(dian)(dian)(dian)企業(ye)黨(dang)的(de)(de)建設存在弱(ruo)化(hua)、淡化(hua)、虛化(hua)、邊緣化(hua)的(de)(de)問題，中(zhong)央電(dian)(dian)(dian)網(wang)企業(ye)按(an)照“全(quan)(quan)面覆蓋、有(you)效覆蓋”的(de)(de)要求(qiu)，與(yu)產權劃轉同步(bu)健全(quan)(quan)黨(dang)的(de)(de)組織，將位于供電(dian)(dian)(dian)一線的(de)(de)每個(ge)班組、農村基層(ceng)的(de)(de)每個(ge)服(fu)(fu)務(wu)(wu)點都建成(cheng)聯系(xi)群眾(zhong)、服(fu)(fu)務(wu)(wu)群眾(zhong)的(de)(de)“前言(yan)哨(shao)”和“連心橋”。如國家電(dian)(dian)(dian)網(wang)四川(chuan)資陽(yang)公司基層(ceng)服(fu)(fu)務(wu)(wu)點發(fa)現春節期間農村外(wai)(wai)出務(wu)(wu)工人員(yuan)集中(zhong)返(fan)鄉，用電(dian)(dian)(dian)負荷急(ji)劇(ju)增(zeng)加，容易出現電(dian)(dian)(dian)壓(ya)不穩(wen)、斷(duan)電(dian)(dian)(dian)等情況(kuang)，他們通過提(ti)前掌握外(wai)(wai)出務(wu)(wu)工人員(yuan)返(fan)鄉時間，安排移動發(fa)電(dian)(dian)(dian)機和變壓(ya)器(qi)，確保群眾(zhong)春節期間用電(dian)(dian)(dian)需求(qiu)。
目(mu)前我國(guo)正在推進(jin)新一(yi)輪電力體(ti)制改(gai)革(ge)(ge)，國(guo)企國(guo)資改(gai)革(ge)(ge)也進(jin)入(ru)了深入(ru)推進(jin)階段，為(wei)進(jin)一(yi)步鞏固農網改(gai)革(ge)(ge)成果，提升服(fu)務“三農”水平，提出如下建議：
一(yi)(yi)是進(jin)一(yi)(yi)步健全電(dian)(dian)力(li)普遍(bian)(bian)服(fu)務補償機制。我(wo)國大多(duo)農(nong)(nong)(nong)村(cun)地(di)區(qu)(qu)特別是西部、東(dong)北一(yi)(yi)些地(di)區(qu)(qu)，地(di)廣人稀，經濟(ji)社會發(fa)展(zhan)(zhan)相對(dui)滯后，農(nong)(nong)(nong)村(cun)供電(dian)(dian)電(dian)(dian)量規模小，供電(dian)(dian)業務點(dian)多(duo)面(mian)(mian)(mian)廣線長，單(dan)位輸(shu)配(pei)電(dian)(dian)成本(ben)高，供電(dian)(dian)收入(ru)和成本(ben)不匹配(pei)，具有(you)典型的普遍(bian)(bian)服(fu)務屬性。一(yi)(yi)直(zhi)以來(lai)中央電(dian)(dian)網(wang)(wang)企(qi)(qi)業通過工(gong)業和城市用戶補貼農(nong)(nong)(nong)村(cun)用戶的交(jiao)叉補貼方式支持(chi)農(nong)(nong)(nong)村(cun)電(dian)(dian)網(wang)(wang)發(fa)展(zhan)(zhan)。如2015年，南方電(dian)(dian)網(wang)(wang)公司260家(jia)獨(du)立(li)核算的農(nong)(nong)(nong)電(dian)(dian)企(qi)(qi)業有(you)65家(jia)虧(kui)損，占25%，如果(guo)剔除“電(dian)(dian)價交(jiao)叉補貼”等扶(fu)持(chi)因素，虧(kui)損面(mian)(mian)(mian)將擴大到92%。建議在新一(yi)(yi)輪電(dian)(dian)力(li)體制改革中，一(yi)(yi)方面(mian)(mian)(mian)進(jin)一(yi)(yi)步健全普遍(bian)(bian)服(fu)務補償機制，切實保障各類交(jiao)叉補貼資金(jin)來(lai)源，并探索在國家(jia)層面(mian)(mian)(mian)建立(li)普遍(bian)(bian)服(fu)務基金(jin)，專項(xiang)用于“老少(shao)邊(bian)窮(qiong)”地(di)區(qu)(qu)電(dian)(dian)網(wang)(wang)企(qi)(qi)業的電(dian)(dian)力(li)普遍(bian)(bian)服(fu)務成本(ben)補償。另一(yi)(yi)方面(mian)(mian)(mian)在政府(fu)價格部門按照“準許成本(ben)加合理收益”機制核定(ding)輸(shu)配(pei)電(dian)(dian)價時(shi)，針對(dui)農(nong)(nong)(nong)村(cun)電(dian)(dian)網(wang)(wang)運營發(fa)展(zhan)(zhan)困難的特殊情況，適當提高農(nong)(nong)(nong)網(wang)(wang)資產的定(ding)價準許成本(ben)和收益水平，支持(chi)和保障農(nong)(nong)(nong)網(wang)(wang)的正常運營和發(fa)展(zhan)(zhan)需要。
二(er)是進一(yi)(yi)(yi)步理順(shun)農(nong)(nong)村(cun)(cun)(cun)(cun)電(dian)(dian)(dian)力管理體(ti)(ti)制(zhi)(zhi)。目前，少數地(di)方仍由“自(zi)(zi)供自(zi)(zi)管”農(nong)(nong)電(dian)(dian)(dian)企(qi)業(ye)(ye)負責供電(dian)(dian)(dian)，造成(cheng)農(nong)(nong)村(cun)(cun)(cun)(cun)電(dian)(dian)(dian)網(wang)(wang)的(de)(de)(de)(de)實(shi)際(ji)分(fen)割，影響了電(dian)(dian)(dian)網(wang)(wang)的(de)(de)(de)(de)整體(ti)(ti)統(tong)(tong)一(yi)(yi)(yi)規(gui)劃(hua)和建(jian)設(she)(she)；還(huan)有(you)些(xie)地(di)方新(xin)成(cheng)立了“自(zi)(zi)供自(zi)(zi)管”企(qi)業(ye)(ye)，專門負責縣域內(nei)的(de)(de)(de)(de)工(gong)業(ye)(ye)園區(qu)、工(gong)業(ye)(ye)企(qi)業(ye)(ye)等存量用電(dian)(dian)(dian)大(da)戶，無序建(jian)設(she)(she)高等級輸電(dian)(dian)(dian)網(wang)(wang)絡(luo)。這樣容(rong)易造成(cheng)重(zhong)復建(jian)設(she)(she)、投(tou)資浪費，也(ye)會(hui)形成(cheng)“用電(dian)(dian)(dian)大(da)戶人人搶(qiang)，普通用戶無人管”的(de)(de)(de)(de)局面(mian)。建(jian)議在新(xin)一(yi)(yi)(yi)輪電(dian)(dian)(dian)力體(ti)(ti)制(zhi)(zhi)改革中，考(kao)慮電(dian)(dian)(dian)網(wang)(wang)具有(you)自(zi)(zi)然(ran)壟斷屬性、尊(zun)重(zhong)農(nong)(nong)村(cun)(cun)(cun)(cun)電(dian)(dian)(dian)網(wang)(wang)發展(zhan)的(de)(de)(de)(de)客(ke)觀規(gui)律，從更有(you)利(li)于做好農(nong)(nong)村(cun)(cun)(cun)(cun)供電(dian)(dian)(dian)服務、更有(you)利(li)于促進農(nong)(nong)電(dian)(dian)(dian)企(qi)業(ye)(ye)持續健康發展(zhan)的(de)(de)(de)(de)角(jiao)度出發，支持和推(tui)動中央電(dian)(dian)(dian)網(wang)(wang)企(qi)業(ye)(ye)充分(fen)發揮規(gui)模(mo)優勢和專業(ye)(ye)優勢，采取產權劃(hua)轉等多種方式，進一(yi)(yi)(yi)步理順(shun)農(nong)(nong)村(cun)(cun)(cun)(cun)電(dian)(dian)(dian)力管理體(ti)(ti)制(zhi)(zhi)，提供大(da)電(dian)(dian)(dian)網(wang)(wang)延伸(shen)服務，實(shi)現電(dian)(dian)(dian)網(wang)(wang)統(tong)(tong)一(yi)(yi)(yi)規(gui)劃(hua)、統(tong)(tong)一(yi)(yi)(yi)建(jian)設(she)(she)、統(tong)(tong)一(yi)(yi)(yi)運營、統(tong)(tong)一(yi)(yi)(yi)管理，保(bao)障(zhang)好農(nong)(nong)村(cun)(cun)(cun)(cun)地(di)區(qu)供電(dian)(dian)(dian)。
三是推動建立支持縣域經濟發展的財政(zheng)稅收(shou)機制(zhi)。為(wei)支持農村電(dian)網(wang)發展，履(lv)行電(dian)網(wang)企業(ye)(ye)(ye)提供(gong)普(pu)遍服務的職責，中央電(dian)網(wang)企業(ye)(ye)(ye)認真落實國(guo)務院及國(guo)資(zi)委“瘦(shou)身健體”工作要求，穩步推進縣級(ji)(ji)(ji)供(gong)電(dian)企業(ye)(ye)(ye)“子(zi)改分(fen)”工作。縣級(ji)(ji)(ji)供(gong)電(dian)企業(ye)(ye)(ye)“子(zi)改分(fen)”后，原本屬于縣級(ji)(ji)(ji)地方財政(zheng)收(shou)入來(lai)源的縣級(ji)(ji)(ji)供(gong)電(dian)企業(ye)(ye)(ye)所得(de)稅將(jiang)調整至各(ge)省級(ji)(ji)(ji)電(dian)網(wang)公(gong)司(si)本部所在(zai)地繳納，有(you)關縣級(ji)(ji)(ji)區(qu)域現有(you)利益可能受到較大影響。為(wei)支持縣域經濟發展，建議采(cai)取財政(zheng)轉移支付等方式，將(jiang)省級(ji)(ji)(ji)電(dian)網(wang)公(gong)司(si)所繳稅額在(zai)省、縣兩級(ji)(ji)(ji)合理分(fen)配。