文章(zhang)來源(yuan)：產權局(ju) 發布時間：2018-03-29
長期以(yi)來，我國(guo)縣及縣以(yi)下的(de)(de)廣大(da)農村(cun)(cun)地區形成了三類主體從事供(gong)電的(de)(de)局面，即(ji)國(guo)家電網(wang)(wang)(wang)(wang)公司和南方(fang)電網(wang)(wang)(wang)(wang)公司（以(yi)下統稱(cheng)中央電網(wang)(wang)(wang)(wang)企(qi)(qi)(qi)(qi)業(ye)(ye)）全資的(de)(de)“直供(gong)直管(guan)”供(gong)電企(qi)(qi)(qi)(qi)業(ye)(ye)、由中央電網(wang)(wang)(wang)(wang)企(qi)(qi)(qi)(qi)業(ye)(ye)“代管(guan)”的(de)(de)縣國(guo)有供(gong)電企(qi)(qi)(qi)(qi)業(ye)(ye)、與中央電網(wang)(wang)(wang)(wang)企(qi)(qi)(qi)(qi)業(ye)(ye)既無產權關系(xi)也無管(guan)理(li)關系(xi)的(de)(de)其他“自供(gong)自管(guan)”企(qi)(qi)(qi)(qi)業(ye)(ye)。這一農電體制(zhi)導致城(cheng)鄉電網(wang)(wang)(wang)(wang)之(zhi)間難以(yi)真正實現統籌規劃和建設，加(jia)之(zhi)部分“代管(guan)”和“自供(gong)自管(guan)”企(qi)(qi)(qi)(qi)業(ye)(ye)自我積累能(neng)力差，農村(cun)(cun)電網(wang)(wang)(wang)(wang)投資欠(qian)賬多、管(guan)理(li)基礎(chu)薄弱(ruo)，農村(cun)(cun)電網(wang)(wang)(wang)(wang)發展不平衡的(de)(de)矛盾日(ri)益突出，成為制(zhi)約農村(cun)(cun)經濟社會(hui)發展的(de)(de)短板之(zhi)一。
為貫徹落實(shi)國(guo)家農(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)力(li)體(ti)制(zhi)改(gai)革(ge)部署，補齊農(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)的短板，近年(nian)來(lai)，國(guo)務(wu)院國(guo)資委指(zhi)導(dao)中央電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)積極(ji)爭取地方政府的支持(chi)，克服地方農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業(ye)普遍經(jing)營效益差、歷史負擔沉重、人員(yuan)安置壓力(li)大等困難，通過直接劃(hua)轉(zhuan)、先代(dai)管再劃(hua)轉(zhuan)、先合資控(kong)股再劃(hua)轉(zhuan)等路徑(jing)，累計(ji)上(shang)收29個(ge)省（自治區(qu)）農(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業(ye)1056戶，涉及資產總額(e)3276億(yi)元、凈資產977億(yi)元。目前，全國(guo)2163個(ge)涉及農(nong)(nong)網(wang)(wang)(wang)的行政縣區(qu)中，1979個(ge)已實(shi)現(xian)“直供直管”。絕(jue)大部分縣域(yu)農(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)都納入(ru)了全國(guo)電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)“大盤子”，從根本上(shang)破(po)除了制(zhi)約(yue)農(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)發展的體(ti)制(zhi)障礙，“大、小電(dian)(dian)(dian)(dian)網(wang)(wang)(wang)”真正實(shi)現(xian)了統(tong)一(yi)規劃(hua)、統(tong)一(yi)建(jian)設、統(tong)一(yi)運營、統(tong)一(yi)管理。
一是(shi)推進無(wu)電(dian)(dian)地區電(dian)(dian)力建設，解決了無(wu)電(dian)(dian)人口(kou)的用電(dian)(dian)問題。中央電(dian)(dian)網企(qi)業克服惡劣的地質和交通條(tiao)件，加大資(zi)金投入，探索“發供(gong)一體(ti)”的特殊供(gong)電(dian)(dian)模式，累計完成無(wu)電(dian)(dian)地區電(dian)(dian)力建設投資(zi)438億元(yuan)，解決了248萬戶(hu)無(wu)電(dian)(dian)家(jia)庭、982萬無(wu)電(dian)(dian)人口(kou)的用電(dian)(dian)問題。
二(er)是提(ti)(ti)高供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)能力(li)和(he)質量(liang)，為(wei)脫貧(pin)攻堅奠定(ding)堅實基礎。“十二(er)五”期間(jian)(jian)，中央電(dian)(dian)(dian)(dian)(dian)網(wang)企業累計完成農網(wang)投資6048億元，農村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)戶均(jun)配電(dian)(dian)(dian)(dian)(dian)容量(liang)增(zeng)加70%，解決(jue)了(le)中西部地(di)區(qu)45個縣域(yu)電(dian)(dian)(dian)(dian)(dian)網(wang)“孤網(wang)運行”問題、148個縣域(yu)電(dian)(dian)(dian)(dian)(dian)網(wang)與主網(wang)聯(lian)系(xi)薄弱問題，農村(cun)供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)可靠率達到(dao)(dao)99.7%以上，用(yong)戶年(nian)均(jun)停(ting)電(dian)(dian)(dian)(dian)(dian)時間(jian)(jian)由2010年(nian)的30小時以上縮短至(zhi)15小時左右，農村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)能力(li)和(he)質量(liang)顯著提(ti)(ti)升。對供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)區(qu)域(yu)內567個國家(jia)級貧(pin)困縣農網(wang)投資1622億元，貧(pin)困農村(cun)地(di)區(qu)電(dian)(dian)(dian)(dian)(dian)力(li)“卡脖子”問題得到(dao)(dao)有(you)效治理，過(guo)去(qu)困擾農村(cun)地(di)區(qu)發展的頻繁停(ting)電(dian)(dian)(dian)(dian)(dian)、電(dian)(dian)(dian)(dian)(dian)壓不(bu)穩現(xian)象得到(dao)(dao)根本扭轉，為(wei)脫貧(pin)攻堅提(ti)(ti)供(gong)(gong)了(le)堅實電(dian)(dian)(dian)(dian)(dian)力(li)保(bao)障。
三(san)是統籌(chou)協(xie)調(diao)全網資源，農(nong)(nong)村電(dian)(dian)網的抗(kang)風險能力(li)(li)大幅提(ti)升。中央(yang)電(dian)(dian)網企(qi)(qi)業發揮全網一(yi)(yi)盤棋的優(you)勢，在(zai)強化農(nong)(nong)村電(dian)(dian)網的技(ji)術防(fang)災能力(li)(li)建設的同時，依托自(zi)身較為完善的管控體系(xi)和(he)應(ying)急(ji)機制，使農(nong)(nong)村電(dian)(dian)網的抗(kang)災、救災和(he)災后恢(hui)復能力(li)(li)顯著提(ti)高(gao)。如臺風“莫蘭蒂”、“鯰魚(yu)”短時間(jian)內連續登陸福建，造成(cheng)疊加災害影響，在(zai)道路(lu)沖毀、通訊中斷等不利條件下(xia)，中央(yang)電(dian)(dian)網企(qi)(qi)業協(xie)調(diao)電(dian)(dian)力(li)(li)搶修(xiu)隊伍和(he)資源，僅用(yong)了常規搶修(xiu)時間(jian)的三(san)分之一(yi)(yi)就全面(mian)恢(hui)復了數百萬受(shou)災用(yong)戶的供電(dian)(dian)，為當地快速開展(zhan)救災和(he)災后重(zhong)建提(ti)供了有(you)力(li)(li)保障。
四是加強黨的(de)(de)建設(she)，暢通基層電(dian)(dian)(dian)網(wang)企(qi)業服務(wu)(wu)群(qun)(qun)(qun)眾(zhong)(zhong)(zhong)的(de)(de)“最后一(yi)公(gong)里”。農(nong)村電(dian)(dian)(dian)網(wang)是整個電(dian)(dian)(dian)網(wang)的(de)(de)“神經(jing)末梢”，針對部分農(nong)電(dian)(dian)(dian)企(qi)業黨的(de)(de)建設(she)存在弱化、淡化、虛化、邊緣(yuan)化的(de)(de)問(wen)題，中(zhong)央電(dian)(dian)(dian)網(wang)企(qi)業按照“全面覆蓋、有效覆蓋”的(de)(de)要(yao)求，與產權劃(hua)轉同步健全黨的(de)(de)組織，將位(wei)于(yu)供電(dian)(dian)(dian)一(yi)線的(de)(de)每個班(ban)組、農(nong)村基層的(de)(de)每個服務(wu)(wu)點(dian)都建成聯系群(qun)(qun)(qun)眾(zhong)(zhong)(zhong)、服務(wu)(wu)群(qun)(qun)(qun)眾(zhong)(zhong)(zhong)的(de)(de)“前言(yan)哨”和(he)“連心橋”。如國家電(dian)(dian)(dian)網(wang)四川資陽公(gong)司基層服務(wu)(wu)點(dian)發現春節期(qi)間(jian)農(nong)村外(wai)(wai)出務(wu)(wu)工人員集中(zhong)返(fan)鄉，用電(dian)(dian)(dian)負荷急劇增加，容易出現電(dian)(dian)(dian)壓不穩(wen)、斷電(dian)(dian)(dian)等情況，他們通過提前掌(zhang)握外(wai)(wai)出務(wu)(wu)工人員返(fan)鄉時間(jian)，安排移動發電(dian)(dian)(dian)機和(he)變壓器(qi)，確保群(qun)(qun)(qun)眾(zhong)(zhong)(zhong)春節期(qi)間(jian)用電(dian)(dian)(dian)需求。
目前我(wo)國(guo)正在(zai)推進新一輪電(dian)力(li)體制改革，國(guo)企國(guo)資改革也進入(ru)了深入(ru)推進階(jie)段，為進一步鞏固農網(wang)改革成果(guo)，提(ti)升服務“三農”水平(ping)，提(ti)出如下建(jian)議：
一(yi)(yi)是(shi)進一(yi)(yi)步健全(quan)電(dian)力(li)普(pu)(pu)遍服務(wu)(wu)補(bu)償機(ji)制(zhi)(zhi)(zhi)。我國大多(duo)農(nong)(nong)村(cun)地(di)區特別是(shi)西部、東北一(yi)(yi)些地(di)區，地(di)廣人稀，經濟社會發(fa)展(zhan)(zhan)相對滯后，農(nong)(nong)村(cun)供電(dian)電(dian)量規模小，供電(dian)業務(wu)(wu)點多(duo)面(mian)廣線長，單位輸配(pei)電(dian)成(cheng)(cheng)本(ben)高，供電(dian)收(shou)入和(he)(he)(he)成(cheng)(cheng)本(ben)不匹配(pei)，具(ju)有典型的(de)(de)(de)普(pu)(pu)遍服務(wu)(wu)屬性。一(yi)(yi)直以來中央電(dian)網企(qi)業通過工(gong)業和(he)(he)(he)城市用(yong)戶補(bu)貼農(nong)(nong)村(cun)用(yong)戶的(de)(de)(de)交(jiao)(jiao)叉(cha)補(bu)貼方式(shi)支(zhi)持農(nong)(nong)村(cun)電(dian)網發(fa)展(zhan)(zhan)。如2015年，南方電(dian)網公司(si)260家(jia)獨立(li)核算的(de)(de)(de)農(nong)(nong)電(dian)企(qi)業有65家(jia)虧損，占25%，如果剔除(chu)“電(dian)價(jia)(jia)(jia)交(jiao)(jiao)叉(cha)補(bu)貼”等扶持因素，虧損面(mian)將擴大到92%。建(jian)議在新一(yi)(yi)輪(lun)電(dian)力(li)體制(zhi)(zhi)(zhi)改(gai)革中，一(yi)(yi)方面(mian)進一(yi)(yi)步健全(quan)普(pu)(pu)遍服務(wu)(wu)補(bu)償機(ji)制(zhi)(zhi)(zhi)，切實(shi)保障各類交(jiao)(jiao)叉(cha)補(bu)貼資金來源，并探索在國家(jia)層面(mian)建(jian)立(li)普(pu)(pu)遍服務(wu)(wu)基金，專項用(yong)于“老少邊窮”地(di)區電(dian)網企(qi)業的(de)(de)(de)電(dian)力(li)普(pu)(pu)遍服務(wu)(wu)成(cheng)(cheng)本(ben)補(bu)償。另一(yi)(yi)方面(mian)在政府價(jia)(jia)(jia)格部門按(an)照(zhao)“準(zhun)許(xu)成(cheng)(cheng)本(ben)加合理收(shou)益”機(ji)制(zhi)(zhi)(zhi)核定(ding)輸配(pei)電(dian)價(jia)(jia)(jia)時，針對農(nong)(nong)村(cun)電(dian)網運(yun)營發(fa)展(zhan)(zhan)困難的(de)(de)(de)特殊(shu)情(qing)況，適當提高農(nong)(nong)網資產的(de)(de)(de)定(ding)價(jia)(jia)(jia)準(zhun)許(xu)成(cheng)(cheng)本(ben)和(he)(he)(he)收(shou)益水平，支(zhi)持和(he)(he)(he)保障農(nong)(nong)網的(de)(de)(de)正(zheng)常運(yun)營和(he)(he)(he)發(fa)展(zhan)(zhan)需(xu)要。
二是進(jin)一(yi)步理(li)順(shun)農(nong)(nong)村(cun)電(dian)(dian)力管(guan)(guan)理(li)體(ti)(ti)制(zhi)。目前，少數地(di)方(fang)仍由“自供自管(guan)(guan)”農(nong)(nong)電(dian)(dian)企(qi)業(ye)(ye)負責供電(dian)(dian)，造成農(nong)(nong)村(cun)電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)的(de)實際分割，影響了(le)電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)的(de)整體(ti)(ti)統一(yi)規劃(hua)和建(jian)(jian)設；還(huan)有(you)(you)(you)些地(di)方(fang)新成立(li)了(le)“自供自管(guan)(guan)”企(qi)業(ye)(ye)，專門負責縣域(yu)內的(de)工業(ye)(ye)園區、工業(ye)(ye)企(qi)業(ye)(ye)等(deng)存(cun)量用(yong)電(dian)(dian)大戶(hu)，無(wu)(wu)序(xu)建(jian)(jian)設高(gao)等(deng)級輸電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)絡。這樣(yang)容易(yi)造成重復建(jian)(jian)設、投(tou)資浪費，也會形成“用(yong)電(dian)(dian)大戶(hu)人(ren)人(ren)搶，普通用(yong)戶(hu)無(wu)(wu)人(ren)管(guan)(guan)”的(de)局面。建(jian)(jian)議在(zai)新一(yi)輪電(dian)(dian)力體(ti)(ti)制(zhi)改(gai)革中，考慮電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)具有(you)(you)(you)自然壟斷(duan)屬性、尊(zun)重農(nong)(nong)村(cun)電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)發展(zhan)的(de)客觀(guan)規律(lv)，從更有(you)(you)(you)利(li)于(yu)做好農(nong)(nong)村(cun)供電(dian)(dian)服務(wu)、更有(you)(you)(you)利(li)于(yu)促(cu)進(jin)農(nong)(nong)電(dian)(dian)企(qi)業(ye)(ye)持續健康(kang)發展(zhan)的(de)角度(du)出(chu)發，支(zhi)持和推動中央電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)企(qi)業(ye)(ye)充分發揮規模優勢(shi)和專業(ye)(ye)優勢(shi)，采取(qu)產權劃(hua)轉等(deng)多種方(fang)式，進(jin)一(yi)步理(li)順(shun)農(nong)(nong)村(cun)電(dian)(dian)力管(guan)(guan)理(li)體(ti)(ti)制(zhi)，提供大電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)延伸服務(wu)，實現電(dian)(dian)網(wang)(wang)(wang)(wang)(wang)統一(yi)規劃(hua)、統一(yi)建(jian)(jian)設、統一(yi)運(yun)營、統一(yi)管(guan)(guan)理(li)，保障好農(nong)(nong)村(cun)地(di)區供電(dian)(dian)。
三是推動(dong)建(jian)立(li)支持縣(xian)(xian)域經濟(ji)發展的財(cai)政稅收(shou)機制。為支持農村(cun)電(dian)(dian)網發展，履行電(dian)(dian)網企(qi)業(ye)提供普遍服務的職(zhi)責，中央電(dian)(dian)網企(qi)業(ye)認真落實國(guo)務院及國(guo)資委“瘦身健體”工(gong)作要(yao)求，穩(wen)步推進縣(xian)(xian)級(ji)供電(dian)(dian)企(qi)業(ye)“子(zi)改(gai)分”工(gong)作。縣(xian)(xian)級(ji)供電(dian)(dian)企(qi)業(ye)“子(zi)改(gai)分”后，原本屬于縣(xian)(xian)級(ji)地方(fang)財(cai)政收(shou)入來(lai)源(yuan)的縣(xian)(xian)級(ji)供電(dian)(dian)企(qi)業(ye)所得稅將調整至各省級(ji)電(dian)(dian)網公(gong)司本部(bu)所在(zai)地繳納，有(you)關縣(xian)(xian)級(ji)區域現(xian)有(you)利益可能受到較大影響(xiang)。為支持縣(xian)(xian)域經濟(ji)發展，建(jian)議采取財(cai)政轉(zhuan)移支付等方(fang)式(shi)，將省級(ji)電(dian)(dian)網公(gong)司所繳稅額在(zai)省、縣(xian)(xian)兩級(ji)合理(li)分配。