文章來(lai)源(yuan)：產權(quan)局 發布(bu)時間：2018-03-29
長期(qi)以(yi)來，我(wo)國(guo)(guo)縣(xian)及縣(xian)以(yi)下(xia)的(de)(de)廣大(da)農(nong)(nong)村地區形成了三類(lei)主(zhu)體從事供(gong)(gong)電的(de)(de)局面，即(ji)國(guo)(guo)家電網(wang)公司和南方電網(wang)公司（以(yi)下(xia)統(tong)稱中(zhong)央電網(wang)企(qi)業(ye)(ye)）全資的(de)(de)“直(zhi)供(gong)(gong)直(zhi)管(guan)”供(gong)(gong)電企(qi)業(ye)(ye)、由(you)中(zhong)央電網(wang)企(qi)業(ye)(ye)“代管(guan)”的(de)(de)縣(xian)國(guo)(guo)有供(gong)(gong)電企(qi)業(ye)(ye)、與中(zhong)央電網(wang)企(qi)業(ye)(ye)既無產權關系也無管(guan)理(li)關系的(de)(de)其他“自供(gong)(gong)自管(guan)”企(qi)業(ye)(ye)。這(zhe)一(yi)農(nong)(nong)電體制(zhi)導致(zhi)城(cheng)鄉(xiang)電網(wang)之(zhi)間難以(yi)真正實現統(tong)籌規劃和建(jian)設，加之(zhi)部分“代管(guan)”和“自供(gong)(gong)自管(guan)”企(qi)業(ye)(ye)自我(wo)積(ji)累能(neng)力差，農(nong)(nong)村電網(wang)投(tou)資欠賬多、管(guan)理(li)基礎薄弱，農(nong)(nong)村電網(wang)發(fa)展不(bu)平衡(heng)的(de)(de)矛盾日益突出，成為制(zhi)約農(nong)(nong)村經濟社會發(fa)展的(de)(de)短板之(zhi)一(yi)。
為貫徹落實(shi)國(guo)家農(nong)(nong)村(cun)電(dian)力體制改革部署，補齊農(nong)(nong)村(cun)電(dian)網(wang)(wang)(wang)的(de)短板(ban)，近年來(lai)，國(guo)務院國(guo)資(zi)委指導中央電(dian)網(wang)(wang)(wang)企業積極爭取地(di)方政(zheng)(zheng)府的(de)支持，克服地(di)方農(nong)(nong)電(dian)企業普(pu)遍經營效益差、歷史負擔沉重、人員安置壓力大等(deng)困難(nan)，通過直接劃(hua)(hua)轉、先代(dai)管(guan)再劃(hua)(hua)轉、先合資(zi)控股再劃(hua)(hua)轉等(deng)路徑，累計上(shang)(shang)收29個(ge)省(sheng)（自治區）農(nong)(nong)電(dian)企業1056戶，涉及(ji)資(zi)產總(zong)額3276億(yi)元、凈資(zi)產977億(yi)元。目前，全(quan)國(guo)2163個(ge)涉及(ji)農(nong)(nong)網(wang)(wang)(wang)的(de)行政(zheng)(zheng)縣(xian)區中，1979個(ge)已(yi)實(shi)現“直供直管(guan)”。絕大部分縣(xian)域農(nong)(nong)村(cun)電(dian)網(wang)(wang)(wang)都納入了全(quan)國(guo)電(dian)網(wang)(wang)(wang)“大盤子”，從根本(ben)上(shang)(shang)破除了制約農(nong)(nong)村(cun)電(dian)網(wang)(wang)(wang)發展的(de)體制障礙，“大、小電(dian)網(wang)(wang)(wang)”真(zhen)正(zheng)實(shi)現了統一(yi)規(gui)劃(hua)(hua)、統一(yi)建設、統一(yi)運營、統一(yi)管(guan)理。
一是推進無(wu)(wu)電(dian)(dian)(dian)(dian)(dian)地區電(dian)(dian)(dian)(dian)(dian)力(li)建(jian)設(she)，解決(jue)了無(wu)(wu)電(dian)(dian)(dian)(dian)(dian)人口的用(yong)電(dian)(dian)(dian)(dian)(dian)問(wen)題(ti)。中央電(dian)(dian)(dian)(dian)(dian)網企業克服惡劣的地質和(he)交通條件，加大資金投入，探(tan)索“發(fa)供(gong)一體”的特殊供(gong)電(dian)(dian)(dian)(dian)(dian)模式，累(lei)計完成無(wu)(wu)電(dian)(dian)(dian)(dian)(dian)地區電(dian)(dian)(dian)(dian)(dian)力(li)建(jian)設(she)投資438億元，解決(jue)了248萬(wan)戶無(wu)(wu)電(dian)(dian)(dian)(dian)(dian)家庭、982萬(wan)無(wu)(wu)電(dian)(dian)(dian)(dian)(dian)人口的用(yong)電(dian)(dian)(dian)(dian)(dian)問(wen)題(ti)。
二是提高(gao)供(gong)電(dian)(dian)(dian)能力(li)和質(zhi)(zhi)量，為(wei)脫貧攻堅(jian)奠定堅(jian)實(shi)基礎。“十二五”期(qi)間，中(zhong)央電(dian)(dian)(dian)網(wang)(wang)企業(ye)累(lei)計完(wan)成農(nong)網(wang)(wang)投資(zi)6048億元(yuan)，農(nong)村電(dian)(dian)(dian)網(wang)(wang)戶(hu)均配電(dian)(dian)(dian)容量增加(jia)70%，解(jie)決了(le)中(zhong)西部地(di)區(qu)(qu)45個(ge)(ge)縣域(yu)電(dian)(dian)(dian)網(wang)(wang)“孤網(wang)(wang)運行”問題、148個(ge)(ge)縣域(yu)電(dian)(dian)(dian)網(wang)(wang)與(yu)主網(wang)(wang)聯系薄弱問題，農(nong)村供(gong)電(dian)(dian)(dian)可靠率達到99.7%以上，用戶(hu)年(nian)均停(ting)(ting)電(dian)(dian)(dian)時(shi)間由2010年(nian)的30小(xiao)時(shi)以上縮短至15小(xiao)時(shi)左(zuo)右，農(nong)村電(dian)(dian)(dian)網(wang)(wang)供(gong)電(dian)(dian)(dian)能力(li)和質(zhi)(zhi)量顯著提升。對供(gong)電(dian)(dian)(dian)區(qu)(qu)域(yu)內567個(ge)(ge)國家級貧困(kun)(kun)縣農(nong)網(wang)(wang)投資(zi)1622億元(yuan)，貧困(kun)(kun)農(nong)村地(di)區(qu)(qu)電(dian)(dian)(dian)力(li)“卡(ka)脖子”問題得到有(you)效治理，過去困(kun)(kun)擾農(nong)村地(di)區(qu)(qu)發展的頻繁停(ting)(ting)電(dian)(dian)(dian)、電(dian)(dian)(dian)壓不穩現象得到根本扭轉，為(wei)脫貧攻堅(jian)提供(gong)了(le)堅(jian)實(shi)電(dian)(dian)(dian)力(li)保(bao)障。
三是(shi)統籌協調(diao)全網(wang)(wang)(wang)資(zi)源，農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)(wang)的抗風(feng)險能(neng)力(li)大(da)幅提升。中央電(dian)(dian)(dian)網(wang)(wang)(wang)企業發(fa)揮全網(wang)(wang)(wang)一盤棋(qi)的優勢，在強化農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)(wang)的技術防災能(neng)力(li)建(jian)(jian)設(she)的同時，依托(tuo)自身較為完善的管控體(ti)系和應急機(ji)制，使農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)(wang)的抗災、救災和災后恢(hui)復能(neng)力(li)顯著提高。如臺風(feng)“莫(mo)蘭蒂”、“鯰魚”短時間(jian)內連續登陸福建(jian)(jian)，造成疊加災害影響，在道路沖毀、通(tong)訊中斷(duan)等不(bu)利條件下，中央電(dian)(dian)(dian)網(wang)(wang)(wang)企業協調(diao)電(dian)(dian)(dian)力(li)搶(qiang)修隊伍和資(zi)源，僅用(yong)了常(chang)規搶(qiang)修時間(jian)的三分之一就全面恢(hui)復了數百(bai)萬受災用(yong)戶的供電(dian)(dian)(dian)，為當(dang)地快速開展救災和災后重(zhong)建(jian)(jian)提供了有力(li)保障。
四是加(jia)強(qiang)黨的(de)(de)建(jian)設(she)，暢(chang)通(tong)基層(ceng)電(dian)網(wang)企(qi)業服務(wu)群眾的(de)(de)“最(zui)后一公(gong)里”。農(nong)村(cun)電(dian)網(wang)是整個(ge)電(dian)網(wang)的(de)(de)“神經末梢”，針對部分農(nong)電(dian)企(qi)業黨的(de)(de)建(jian)設(she)存在弱化(hua)、淡(dan)化(hua)、虛化(hua)、邊緣化(hua)的(de)(de)問題，中央電(dian)網(wang)企(qi)業按照“全面覆(fu)蓋(gai)(gai)、有效覆(fu)蓋(gai)(gai)”的(de)(de)要求，與產(chan)權劃轉同步健(jian)全黨的(de)(de)組織，將(jiang)位于供(gong)電(dian)一線(xian)的(de)(de)每個(ge)班組、農(nong)村(cun)基層(ceng)的(de)(de)每個(ge)服務(wu)點(dian)都建(jian)成聯系群眾、服務(wu)群眾的(de)(de)“前言哨(shao)”和(he)(he)“連心橋”。如國家電(dian)網(wang)四川資陽(yang)公(gong)司基層(ceng)服務(wu)點(dian)發(fa)現春節期間農(nong)村(cun)外出務(wu)工人(ren)員集中返鄉，用電(dian)負荷急劇(ju)增加(jia)，容(rong)易出現電(dian)壓不穩、斷(duan)電(dian)等情況，他們通(tong)過(guo)提前掌握外出務(wu)工人(ren)員返鄉時間，安排移動發(fa)電(dian)機和(he)(he)變壓器，確保(bao)群眾春節期間用電(dian)需求。
目前我國(guo)正在推進(jin)新一輪電力體制改革，國(guo)企國(guo)資(zi)改革也進(jin)入(ru)了深入(ru)推進(jin)階段，為進(jin)一步鞏固(gu)農網改革成(cheng)果，提升服務“三農”水(shui)平，提出如下建議：
一(yi)(yi)(yi)是進(jin)一(yi)(yi)(yi)步(bu)健(jian)全電(dian)(dian)(dian)力普(pu)遍服務(wu)(wu)補(bu)償機(ji)制(zhi)。我(wo)國大(da)多農(nong)村(cun)地區(qu)特別是西(xi)部(bu)、東北(bei)一(yi)(yi)(yi)些地區(qu)，地廣人稀(xi)，經濟社會發展(zhan)相對滯后，農(nong)村(cun)供電(dian)(dian)(dian)電(dian)(dian)(dian)量規模小，供電(dian)(dian)(dian)業(ye)務(wu)(wu)點多面(mian)廣線(xian)長，單位(wei)輸配(pei)電(dian)(dian)(dian)成(cheng)本(ben)(ben)高，供電(dian)(dian)(dian)收(shou)入(ru)和(he)成(cheng)本(ben)(ben)不(bu)匹(pi)配(pei)，具有(you)典型的(de)(de)普(pu)遍服務(wu)(wu)屬性。一(yi)(yi)(yi)直以來(lai)中央(yang)電(dian)(dian)(dian)網(wang)企(qi)業(ye)通過工業(ye)和(he)城市用戶(hu)(hu)補(bu)貼農(nong)村(cun)用戶(hu)(hu)的(de)(de)交叉(cha)補(bu)貼方式支(zhi)持農(nong)村(cun)電(dian)(dian)(dian)網(wang)發展(zhan)。如2015年，南方電(dian)(dian)(dian)網(wang)公司260家(jia)獨立核算的(de)(de)農(nong)電(dian)(dian)(dian)企(qi)業(ye)有(you)65家(jia)虧(kui)損，占25%，如果(guo)剔除“電(dian)(dian)(dian)價(jia)交叉(cha)補(bu)貼”等扶(fu)持因素，虧(kui)損面(mian)將擴大(da)到(dao)92%。建議(yi)在(zai)(zai)新一(yi)(yi)(yi)輪電(dian)(dian)(dian)力體制(zhi)改革中，一(yi)(yi)(yi)方面(mian)進(jin)一(yi)(yi)(yi)步(bu)健(jian)全普(pu)遍服務(wu)(wu)補(bu)償機(ji)制(zhi)，切實(shi)保障各類(lei)交叉(cha)補(bu)貼資金(jin)來(lai)源，并探(tan)索(suo)在(zai)(zai)國家(jia)層面(mian)建立普(pu)遍服務(wu)(wu)基金(jin)，專項用于“老(lao)少邊窮”地區(qu)電(dian)(dian)(dian)網(wang)企(qi)業(ye)的(de)(de)電(dian)(dian)(dian)力普(pu)遍服務(wu)(wu)成(cheng)本(ben)(ben)補(bu)償。另一(yi)(yi)(yi)方面(mian)在(zai)(zai)政府價(jia)格部(bu)門按照“準許成(cheng)本(ben)(ben)加合(he)理(li)收(shou)益”機(ji)制(zhi)核定輸配(pei)電(dian)(dian)(dian)價(jia)時，針對農(nong)村(cun)電(dian)(dian)(dian)網(wang)運營發展(zhan)困難的(de)(de)特殊情況，適當提(ti)高農(nong)網(wang)資產的(de)(de)定價(jia)準許成(cheng)本(ben)(ben)和(he)收(shou)益水(shui)平，支(zhi)持和(he)保障農(nong)網(wang)的(de)(de)正常(chang)運營和(he)發展(zhan)需要。
二是進一(yi)步(bu)理順(shun)農村電(dian)(dian)力管(guan)理體制(zhi)。目前，少數地(di)(di)方仍由“自(zi)供(gong)(gong)(gong)自(zi)管(guan)”農電(dian)(dian)企(qi)(qi)(qi)業負(fu)責供(gong)(gong)(gong)電(dian)(dian)，造(zao)成農村電(dian)(dian)網(wang)(wang)的實際分(fen)割，影響(xiang)了電(dian)(dian)網(wang)(wang)的整體統(tong)(tong)一(yi)規(gui)劃(hua)和(he)(he)建設；還有(you)些地(di)(di)方新成立了“自(zi)供(gong)(gong)(gong)自(zi)管(guan)”企(qi)(qi)(qi)業，專(zhuan)門負(fu)責縣(xian)域內的工業園區、工業企(qi)(qi)(qi)業等存(cun)量用電(dian)(dian)大戶(hu)，無(wu)序(xu)建設高等級輸電(dian)(dian)網(wang)(wang)絡(luo)。這樣容(rong)易造(zao)成重復建設、投資浪費，也會形成“用電(dian)(dian)大戶(hu)人人搶，普(pu)通用戶(hu)無(wu)人管(guan)”的局面。建議在新一(yi)輪(lun)電(dian)(dian)力體制(zhi)改革中，考慮(lv)電(dian)(dian)網(wang)(wang)具(ju)有(you)自(zi)然壟斷屬性(xing)、尊重農村電(dian)(dian)網(wang)(wang)發(fa)展的客(ke)觀(guan)規(gui)律，從更有(you)利(li)于(yu)做好(hao)農村供(gong)(gong)(gong)電(dian)(dian)服(fu)務、更有(you)利(li)于(yu)促進農電(dian)(dian)企(qi)(qi)(qi)業持續健康發(fa)展的角度出發(fa)，支持和(he)(he)推動中央電(dian)(dian)網(wang)(wang)企(qi)(qi)(qi)業充分(fen)發(fa)揮規(gui)模優勢和(he)(he)專(zhuan)業優勢，采(cai)取產權(quan)劃(hua)轉等多種方式，進一(yi)步(bu)理順(shun)農村電(dian)(dian)力管(guan)理體制(zhi)，提供(gong)(gong)(gong)大電(dian)(dian)網(wang)(wang)延伸服(fu)務，實現電(dian)(dian)網(wang)(wang)統(tong)(tong)一(yi)規(gui)劃(hua)、統(tong)(tong)一(yi)建設、統(tong)(tong)一(yi)運營、統(tong)(tong)一(yi)管(guan)理，保障好(hao)農村地(di)(di)區供(gong)(gong)(gong)電(dian)(dian)。
三(san)是推動建立支持縣(xian)(xian)(xian)域(yu)經(jing)濟(ji)發展(zhan)的(de)財(cai)政(zheng)稅(shui)收機制(zhi)。為支持農村(cun)電網(wang)(wang)發展(zhan)，履行電網(wang)(wang)企業(ye)提供(gong)普遍服務的(de)職責，中(zhong)央電網(wang)(wang)企業(ye)認真落實國務院及國資委“瘦(shou)身健體”工(gong)作要求，穩步推進(jin)縣(xian)(xian)(xian)級(ji)(ji)供(gong)電企業(ye)“子改分(fen)(fen)”工(gong)作。縣(xian)(xian)(xian)級(ji)(ji)供(gong)電企業(ye)“子改分(fen)(fen)”后，原本屬于縣(xian)(xian)(xian)級(ji)(ji)地方財(cai)政(zheng)收入(ru)來源的(de)縣(xian)(xian)(xian)級(ji)(ji)供(gong)電企業(ye)所(suo)(suo)得稅(shui)將調整至各省(sheng)級(ji)(ji)電網(wang)(wang)公(gong)司本部所(suo)(suo)在地繳(jiao)納，有關縣(xian)(xian)(xian)級(ji)(ji)區域(yu)現(xian)有利(li)益可能受到較大影響。為支持縣(xian)(xian)(xian)域(yu)經(jing)濟(ji)發展(zhan)，建議采(cai)取財(cai)政(zheng)轉移支付等方式，將省(sheng)級(ji)(ji)電網(wang)(wang)公(gong)司所(suo)(suo)繳(jiao)稅(shui)額在省(sheng)、縣(xian)(xian)(xian)兩級(ji)(ji)合理分(fen)(fen)配。