文(wen)章來源：產權局 發布時(shi)間：2018-03-29
長期以來，我國縣及縣以下(xia)的(de)(de)廣大農(nong)村(cun)地區形成(cheng)了三類主體(ti)從事供(gong)(gong)電(dian)(dian)(dian)的(de)(de)局面，即(ji)國家電(dian)(dian)(dian)網(wang)(wang)(wang)公(gong)司和南方電(dian)(dian)(dian)網(wang)(wang)(wang)公(gong)司（以下(xia)統稱中央電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)(qi)業）全資的(de)(de)“直供(gong)(gong)直管(guan)”供(gong)(gong)電(dian)(dian)(dian)企(qi)(qi)業、由中央電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)(qi)業“代管(guan)”的(de)(de)縣國有供(gong)(gong)電(dian)(dian)(dian)企(qi)(qi)業、與中央電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)(qi)業既無產權關(guan)系也(ye)無管(guan)理(li)關(guan)系的(de)(de)其他(ta)“自供(gong)(gong)自管(guan)”企(qi)(qi)業。這一農(nong)電(dian)(dian)(dian)體(ti)制(zhi)導(dao)致城(cheng)鄉電(dian)(dian)(dian)網(wang)(wang)(wang)之(zhi)間難以真正(zheng)實現統籌(chou)規劃(hua)和建(jian)設，加之(zhi)部分“代管(guan)”和“自供(gong)(gong)自管(guan)”企(qi)(qi)業自我積累(lei)能(neng)力差(cha)，農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)(wang)投資欠賬多、管(guan)理(li)基礎(chu)薄弱，農(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)(wang)發展(zhan)不平衡的(de)(de)矛(mao)盾(dun)日益突出，成(cheng)為制(zhi)約(yue)農(nong)村(cun)經(jing)濟社會發展(zhan)的(de)(de)短板之(zhi)一。
為貫徹落(luo)實(shi)國家農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)力體制(zhi)改革部(bu)署，補(bu)齊農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)網的(de)(de)短板，近(jin)年來，國務院國資(zi)(zi)委指導中(zhong)(zhong)央電(dian)(dian)(dian)網企(qi)業積極爭(zheng)取地(di)方(fang)政府的(de)(de)支持，克服(fu)地(di)方(fang)農(nong)(nong)(nong)電(dian)(dian)(dian)企(qi)業普遍經營(ying)效(xiao)益差、歷(li)史負擔沉重、人(ren)員安置壓力大(da)(da)等困難，通過直接劃(hua)轉、先代管(guan)再(zai)劃(hua)轉、先合資(zi)(zi)控(kong)股(gu)再(zai)劃(hua)轉等路徑，累計上收29個省（自(zi)治(zhi)區）農(nong)(nong)(nong)電(dian)(dian)(dian)企(qi)業1056戶(hu)，涉及(ji)資(zi)(zi)產總額3276億元(yuan)、凈資(zi)(zi)產977億元(yuan)。目前(qian)，全國2163個涉及(ji)農(nong)(nong)(nong)網的(de)(de)行政縣區中(zhong)(zhong)，1979個已(yi)實(shi)現“直供(gong)直管(guan)”。絕大(da)(da)部(bu)分縣域農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)網都納入了(le)全國電(dian)(dian)(dian)網“大(da)(da)盤子”，從根(gen)本上破除了(le)制(zhi)約(yue)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)網發展的(de)(de)體制(zhi)障(zhang)礙(ai)，“大(da)(da)、小電(dian)(dian)(dian)網”真(zhen)正(zheng)實(shi)現了(le)統一規劃(hua)、統一建設、統一運營(ying)、統一管(guan)理。
一是推進無(wu)電(dian)地(di)(di)區(qu)電(dian)力建設(she)，解(jie)決(jue)了無(wu)電(dian)人口的用(yong)電(dian)問題(ti)。中(zhong)央電(dian)網企業(ye)克服惡劣的地(di)(di)質和交通條(tiao)件，加大(da)資(zi)金投入，探(tan)索“發供(gong)一體”的特殊供(gong)電(dian)模式(shi)，累計(ji)完成無(wu)電(dian)地(di)(di)區(qu)電(dian)力建設(she)投資(zi)438億元，解(jie)決(jue)了248萬(wan)(wan)戶(hu)無(wu)電(dian)家庭、982萬(wan)(wan)無(wu)電(dian)人口的用(yong)電(dian)問題(ti)。
二是提高供電能力和(he)質(zhi)量(liang)，為(wei)脫貧(pin)(pin)攻堅(jian)(jian)奠定堅(jian)(jian)實(shi)基(ji)礎。“十二五”期(qi)間，中(zhong)央電網(wang)(wang)企業累計完成農(nong)(nong)(nong)網(wang)(wang)投資6048億元(yuan)，農(nong)(nong)(nong)村電網(wang)(wang)戶(hu)均配電容(rong)量(liang)增加70%，解決(jue)了(le)(le)中(zhong)西(xi)部(bu)地區(qu)45個(ge)縣(xian)域(yu)電網(wang)(wang)“孤網(wang)(wang)運行”問題(ti)、148個(ge)縣(xian)域(yu)電網(wang)(wang)與主網(wang)(wang)聯系薄(bo)弱問題(ti)，農(nong)(nong)(nong)村供電可靠率達到(dao)99.7%以(yi)上，用(yong)戶(hu)年均停電時間由(you)2010年的30小時以(yi)上縮短至15小時左右(you)，農(nong)(nong)(nong)村電網(wang)(wang)供電能力和(he)質(zhi)量(liang)顯著提升。對供電區(qu)域(yu)內567個(ge)國家級貧(pin)(pin)困(kun)(kun)縣(xian)農(nong)(nong)(nong)網(wang)(wang)投資1622億元(yuan)，貧(pin)(pin)困(kun)(kun)農(nong)(nong)(nong)村地區(qu)電力“卡脖子”問題(ti)得(de)到(dao)有效治理，過去困(kun)(kun)擾農(nong)(nong)(nong)村地區(qu)發(fa)展的頻繁停電、電壓(ya)不穩(wen)現(xian)象得(de)到(dao)根本扭轉，為(wei)脫貧(pin)(pin)攻堅(jian)(jian)提供了(le)(le)堅(jian)(jian)實(shi)電力保障(zhang)。
三是統籌協調全網(wang)資源，農村電(dian)網(wang)的(de)抗(kang)風險能力(li)大幅提升(sheng)。中央(yang)電(dian)網(wang)企(qi)業發揮全網(wang)一盤棋(qi)的(de)優勢，在(zai)(zai)強化農村電(dian)網(wang)的(de)技術(shu)防災(zai)(zai)(zai)能力(li)建設的(de)同時(shi)，依(yi)托(tuo)自身較(jiao)為完善的(de)管控(kong)體(ti)系和應急機(ji)制，使農村電(dian)網(wang)的(de)抗(kang)災(zai)(zai)(zai)、救災(zai)(zai)(zai)和災(zai)(zai)(zai)后恢(hui)復能力(li)顯著提高。如(ru)臺風“莫蘭(lan)蒂”、“鯰(nian)魚”短時(shi)間內連續登陸福(fu)建，造成疊加災(zai)(zai)(zai)害影響，在(zai)(zai)道路沖(chong)毀、通訊中斷等不利條件下(xia)，中央(yang)電(dian)網(wang)企(qi)業協調電(dian)力(li)搶修(xiu)隊伍和資源，僅用(yong)了常規搶修(xiu)時(shi)間的(de)三分之一就全面恢(hui)復了數百萬受災(zai)(zai)(zai)用(yong)戶的(de)供(gong)電(dian)，為當(dang)地快速開展救災(zai)(zai)(zai)和災(zai)(zai)(zai)后重建提供(gong)了有力(li)保障。
四是(shi)加強黨(dang)(dang)的(de)建(jian)(jian)設(she)，暢通基層(ceng)電(dian)(dian)網(wang)(wang)企業服務(wu)(wu)群眾(zhong)(zhong)的(de)“最后(hou)一公里”。農村電(dian)(dian)網(wang)(wang)是(shi)整個(ge)(ge)(ge)電(dian)(dian)網(wang)(wang)的(de)“神(shen)經末梢”，針對(dui)部分農電(dian)(dian)企業黨(dang)(dang)的(de)建(jian)(jian)設(she)存在弱化(hua)、淡化(hua)、虛化(hua)、邊緣(yuan)化(hua)的(de)問題，中央電(dian)(dian)網(wang)(wang)企業按(an)照“全面覆蓋、有效覆蓋”的(de)要(yao)求，與(yu)產權劃(hua)轉(zhuan)同步(bu)健全黨(dang)(dang)的(de)組(zu)織，將位于供(gong)電(dian)(dian)一線的(de)每(mei)個(ge)(ge)(ge)班組(zu)、農村基層(ceng)的(de)每(mei)個(ge)(ge)(ge)服務(wu)(wu)點(dian)都建(jian)(jian)成聯(lian)系群眾(zhong)(zhong)、服務(wu)(wu)群眾(zhong)(zhong)的(de)“前言哨(shao)”和“連心橋”。如國(guo)家電(dian)(dian)網(wang)(wang)四川資陽公司(si)基層(ceng)服務(wu)(wu)點(dian)發現春節期(qi)間(jian)農村外出(chu)(chu)務(wu)(wu)工(gong)人(ren)員集(ji)中返(fan)鄉(xiang)，用電(dian)(dian)負荷(he)急劇增加，容易出(chu)(chu)現電(dian)(dian)壓不(bu)穩、斷電(dian)(dian)等情況，他們通過(guo)提(ti)前掌握外出(chu)(chu)務(wu)(wu)工(gong)人(ren)員返(fan)鄉(xiang)時(shi)間(jian)，安排移動發電(dian)(dian)機和變(bian)壓器，確(que)保群眾(zhong)(zhong)春節期(qi)間(jian)用電(dian)(dian)需求。
目前我國(guo)正在(zai)推(tui)進(jin)新(xin)一輪電力體制改革，國(guo)企國(guo)資改革也進(jin)入了深入推(tui)進(jin)階段(duan)，為進(jin)一步(bu)鞏固農(nong)網改革成果，提(ti)升服務“三農(nong)”水平，提(ti)出如(ru)下(xia)建議：
一是(shi)進(jin)一步(bu)健全電(dian)力(li)普遍(bian)(bian)服務(wu)補(bu)償機制(zhi)。我國大(da)多農(nong)村(cun)(cun)地(di)區(qu)特別是(shi)西(xi)部、東北一些地(di)區(qu)，地(di)廣人稀，經濟社會發展(zhan)相對滯后，農(nong)村(cun)(cun)供(gong)電(dian)電(dian)量(liang)規模小，供(gong)電(dian)業務(wu)點多面廣線長，單(dan)位輸配電(dian)成本(ben)高，供(gong)電(dian)收入(ru)和(he)(he)成本(ben)不(bu)匹配，具有典型的(de)(de)普遍(bian)(bian)服務(wu)屬性(xing)。一直(zhi)以來中央電(dian)網(wang)(wang)(wang)企業通(tong)過工(gong)業和(he)(he)城市(shi)用戶(hu)補(bu)貼農(nong)村(cun)(cun)用戶(hu)的(de)(de)交叉(cha)補(bu)貼方(fang)式支(zhi)持(chi)(chi)農(nong)村(cun)(cun)電(dian)網(wang)(wang)(wang)發展(zhan)。如2015年，南方(fang)電(dian)網(wang)(wang)(wang)公司260家獨立(li)核(he)算的(de)(de)農(nong)電(dian)企業有65家虧(kui)損(sun)，占(zhan)25%，如果(guo)剔除(chu)“電(dian)價(jia)交叉(cha)補(bu)貼”等扶(fu)持(chi)(chi)因素，虧(kui)損(sun)面將(jiang)擴大(da)到92%。建(jian)議在新一輪電(dian)力(li)體制(zhi)改革中，一方(fang)面進(jin)一步(bu)健全普遍(bian)(bian)服務(wu)補(bu)償機制(zhi)，切實(shi)保障各(ge)類(lei)交叉(cha)補(bu)貼資(zi)金來源，并探索在國家層(ceng)面建(jian)立(li)普遍(bian)(bian)服務(wu)基金，專項用于“老少邊窮(qiong)”地(di)區(qu)電(dian)網(wang)(wang)(wang)企業的(de)(de)電(dian)力(li)普遍(bian)(bian)服務(wu)成本(ben)補(bu)償。另(ling)一方(fang)面在政府價(jia)格(ge)部門按照“準許成本(ben)加合理收益”機制(zhi)核(he)定輸配電(dian)價(jia)時，針對農(nong)村(cun)(cun)電(dian)網(wang)(wang)(wang)運(yun)營(ying)發展(zhan)困難的(de)(de)特殊情況，適當提(ti)高農(nong)網(wang)(wang)(wang)資(zi)產的(de)(de)定價(jia)準許成本(ben)和(he)(he)收益水平，支(zhi)持(chi)(chi)和(he)(he)保障農(nong)網(wang)(wang)(wang)的(de)(de)正(zheng)常運(yun)營(ying)和(he)(he)發展(zhan)需要。
二是進一(yi)步(bu)理順農(nong)(nong)村電(dian)(dian)(dian)(dian)力管理體(ti)制(zhi)。目(mu)前，少數地(di)(di)方仍(reng)由“自(zi)供(gong)(gong)自(zi)管”農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業負(fu)責供(gong)(gong)電(dian)(dian)(dian)(dian)，造成(cheng)農(nong)(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)的(de)(de)實際分(fen)割(ge)，影響了(le)電(dian)(dian)(dian)(dian)網(wang)(wang)的(de)(de)整體(ti)統(tong)一(yi)規劃和建(jian)(jian)設；還有(you)(you)些地(di)(di)方新成(cheng)立(li)了(le)“自(zi)供(gong)(gong)自(zi)管”企(qi)業，專門負(fu)責縣域內(nei)的(de)(de)工(gong)業園區(qu)、工(gong)業企(qi)業等存量用電(dian)(dian)(dian)(dian)大(da)戶(hu)，無序建(jian)(jian)設高等級(ji)輸電(dian)(dian)(dian)(dian)網(wang)(wang)絡。這樣容(rong)易(yi)造成(cheng)重復建(jian)(jian)設、投資(zi)浪費(fei)，也會形(xing)成(cheng)“用電(dian)(dian)(dian)(dian)大(da)戶(hu)人人搶，普通(tong)用戶(hu)無人管”的(de)(de)局(ju)面。建(jian)(jian)議在新一(yi)輪電(dian)(dian)(dian)(dian)力體(ti)制(zhi)改革(ge)中，考慮電(dian)(dian)(dian)(dian)網(wang)(wang)具有(you)(you)自(zi)然壟(long)斷屬性、尊重農(nong)(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)發(fa)展(zhan)(zhan)的(de)(de)客觀規律(lv)，從更(geng)有(you)(you)利于做(zuo)好農(nong)(nong)村供(gong)(gong)電(dian)(dian)(dian)(dian)服務、更(geng)有(you)(you)利于促(cu)進農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業持(chi)續健(jian)康發(fa)展(zhan)(zhan)的(de)(de)角度出發(fa)，支持(chi)和推動中央(yang)電(dian)(dian)(dian)(dian)網(wang)(wang)企(qi)業充分(fen)發(fa)揮規模優(you)勢和專業優(you)勢，采取產權劃轉(zhuan)等多種方式(shi)，進一(yi)步(bu)理順農(nong)(nong)村電(dian)(dian)(dian)(dian)力管理體(ti)制(zhi)，提供(gong)(gong)大(da)電(dian)(dian)(dian)(dian)網(wang)(wang)延伸服務，實現電(dian)(dian)(dian)(dian)網(wang)(wang)統(tong)一(yi)規劃、統(tong)一(yi)建(jian)(jian)設、統(tong)一(yi)運營(ying)、統(tong)一(yi)管理，保障好農(nong)(nong)村地(di)(di)區(qu)供(gong)(gong)電(dian)(dian)(dian)(dian)。
三(san)是推(tui)動建立支(zhi)(zhi)(zhi)持縣(xian)(xian)(xian)域(yu)經濟(ji)發展(zhan)的(de)(de)財(cai)(cai)政稅(shui)收機制。為(wei)支(zhi)(zhi)(zhi)持農村電(dian)網發展(zhan)，履(lv)行電(dian)網企(qi)(qi)業(ye)提供普(pu)遍服務的(de)(de)職責(ze)，中央電(dian)網企(qi)(qi)業(ye)認(ren)真落實國務院及國資(zi)委“瘦身健(jian)體”工(gong)作要求，穩步推(tui)進縣(xian)(xian)(xian)級(ji)供電(dian)企(qi)(qi)業(ye)“子改(gai)分(fen)”工(gong)作。縣(xian)(xian)(xian)級(ji)供電(dian)企(qi)(qi)業(ye)“子改(gai)分(fen)”后，原本屬(shu)于縣(xian)(xian)(xian)級(ji)地方財(cai)(cai)政收入來源的(de)(de)縣(xian)(xian)(xian)級(ji)供電(dian)企(qi)(qi)業(ye)所得稅(shui)將(jiang)調整至各省(sheng)級(ji)電(dian)網公司本部所在地繳納(na)，有關縣(xian)(xian)(xian)級(ji)區域(yu)現有利益可能受到較大影響。為(wei)支(zhi)(zhi)(zhi)持縣(xian)(xian)(xian)域(yu)經濟(ji)發展(zhan)，建議(yi)采取財(cai)(cai)政轉移支(zhi)(zhi)(zhi)付等方式，將(jiang)省(sheng)級(ji)電(dian)網公司所繳稅(shui)額(e)在省(sheng)、縣(xian)(xian)(xian)兩級(ji)合理分(fen)配(pei)。