文章來(lai)源：產(chan)權局(ju) 發布時間：2018-03-29
長期以來，我(wo)國(guo)縣(xian)(xian)及縣(xian)(xian)以下的(de)(de)廣大農(nong)(nong)村地(di)區形(xing)成了三類主(zhu)體(ti)從(cong)事供(gong)電(dian)(dian)(dian)的(de)(de)局面，即國(guo)家電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)公司和南方電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)公司（以下統稱(cheng)中(zhong)央(yang)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)企(qi)(qi)業(ye)(ye)(ye)）全(quan)資的(de)(de)“直(zhi)供(gong)直(zhi)管(guan)(guan)”供(gong)電(dian)(dian)(dian)企(qi)(qi)業(ye)(ye)(ye)、由中(zhong)央(yang)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)企(qi)(qi)業(ye)(ye)(ye)“代管(guan)(guan)”的(de)(de)縣(xian)(xian)國(guo)有供(gong)電(dian)(dian)(dian)企(qi)(qi)業(ye)(ye)(ye)、與中(zhong)央(yang)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)企(qi)(qi)業(ye)(ye)(ye)既無產權關系(xi)也(ye)無管(guan)(guan)理(li)關系(xi)的(de)(de)其他(ta)“自(zi)供(gong)自(zi)管(guan)(guan)”企(qi)(qi)業(ye)(ye)(ye)。這(zhe)一農(nong)(nong)電(dian)(dian)(dian)體(ti)制導(dao)致(zhi)城鄉電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)之(zhi)(zhi)間難以真正實現統籌規劃和建設，加之(zhi)(zhi)部分(fen)“代管(guan)(guan)”和“自(zi)供(gong)自(zi)管(guan)(guan)”企(qi)(qi)業(ye)(ye)(ye)自(zi)我(wo)積累能力差，農(nong)(nong)村電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)投資欠賬多(duo)、管(guan)(guan)理(li)基礎薄弱，農(nong)(nong)村電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)發展不平衡的(de)(de)矛盾(dun)日益(yi)突出，成為制約農(nong)(nong)村經濟社會發展的(de)(de)短板之(zhi)(zhi)一。
為貫徹(che)落實國家農(nong)(nong)村電(dian)(dian)力(li)體(ti)制改革部署，補齊農(nong)(nong)村電(dian)(dian)網(wang)(wang)的(de)短板，近年來，國務院國資委指導中央電(dian)(dian)網(wang)(wang)企(qi)業積極爭取(qu)地(di)方政(zheng)府的(de)支持，克(ke)服地(di)方農(nong)(nong)電(dian)(dian)企(qi)業普遍(bian)經營效益差、歷史負擔沉(chen)重、人(ren)員安置壓力(li)大(da)(da)等困難，通過(guo)直(zhi)接劃(hua)(hua)轉、先(xian)代管再劃(hua)(hua)轉、先(xian)合(he)資控股再劃(hua)(hua)轉等路徑，累計(ji)上收(shou)29個省（自治區）農(nong)(nong)電(dian)(dian)企(qi)業1056戶，涉(she)(she)及資產總(zong)額3276億(yi)元、凈資產977億(yi)元。目前，全國2163個涉(she)(she)及農(nong)(nong)網(wang)(wang)的(de)行政(zheng)縣區中，1979個已實現(xian)“直(zhi)供直(zhi)管”。絕大(da)(da)部分縣域農(nong)(nong)村電(dian)(dian)網(wang)(wang)都納入(ru)了(le)全國電(dian)(dian)網(wang)(wang)“大(da)(da)盤子(zi)”，從根本上破除(chu)了(le)制約農(nong)(nong)村電(dian)(dian)網(wang)(wang)發展的(de)體(ti)制障(zhang)礙，“大(da)(da)、小電(dian)(dian)網(wang)(wang)”真(zhen)正實現(xian)了(le)統(tong)一規劃(hua)(hua)、統(tong)一建(jian)設(she)、統(tong)一運營、統(tong)一管理(li)。
一是推進無(wu)電(dian)(dian)地(di)區電(dian)(dian)力(li)建(jian)設，解(jie)決了無(wu)電(dian)(dian)人(ren)口的(de)用電(dian)(dian)問題。中(zhong)央(yang)電(dian)(dian)網企業克服惡劣的(de)地(di)質和(he)交通條件，加大資(zi)金投入，探索“發供一體(ti)”的(de)特殊供電(dian)(dian)模式，累(lei)計(ji)完成無(wu)電(dian)(dian)地(di)區電(dian)(dian)力(li)建(jian)設投資(zi)438億元，解(jie)決了248萬(wan)戶無(wu)電(dian)(dian)家庭、982萬(wan)無(wu)電(dian)(dian)人(ren)口的(de)用電(dian)(dian)問題。
二是提高供(gong)(gong)(gong)電(dian)(dian)(dian)(dian)能力(li)(li)和質量(liang)，為脫(tuo)貧攻堅(jian)奠(dian)定堅(jian)實基礎。“十二五”期(qi)間，中(zhong)央(yang)電(dian)(dian)(dian)(dian)網企業累計完成農(nong)網投(tou)資(zi)6048億元，農(nong)村電(dian)(dian)(dian)(dian)網戶(hu)均配電(dian)(dian)(dian)(dian)容(rong)量(liang)增加(jia)70%，解決了(le)中(zhong)西部地區(qu)(qu)(qu)45個(ge)縣(xian)(xian)域(yu)電(dian)(dian)(dian)(dian)網“孤(gu)網運行”問題(ti)、148個(ge)縣(xian)(xian)域(yu)電(dian)(dian)(dian)(dian)網與主網聯系薄(bo)弱問題(ti)，農(nong)村供(gong)(gong)(gong)電(dian)(dian)(dian)(dian)可靠率達到99.7%以上，用(yong)戶(hu)年均停電(dian)(dian)(dian)(dian)時(shi)間由2010年的30小時(shi)以上縮短至15小時(shi)左右，農(nong)村電(dian)(dian)(dian)(dian)網供(gong)(gong)(gong)電(dian)(dian)(dian)(dian)能力(li)(li)和質量(liang)顯著提升。對(dui)供(gong)(gong)(gong)電(dian)(dian)(dian)(dian)區(qu)(qu)(qu)域(yu)內567個(ge)國(guo)家級貧困(kun)縣(xian)(xian)農(nong)網投(tou)資(zi)1622億元，貧困(kun)農(nong)村地區(qu)(qu)(qu)電(dian)(dian)(dian)(dian)力(li)(li)“卡脖子”問題(ti)得(de)到有(you)效治理，過去困(kun)擾農(nong)村地區(qu)(qu)(qu)發展的頻繁(fan)停電(dian)(dian)(dian)(dian)、電(dian)(dian)(dian)(dian)壓不穩現象(xiang)得(de)到根本扭轉，為脫(tuo)貧攻堅(jian)提供(gong)(gong)(gong)了(le)堅(jian)實電(dian)(dian)(dian)(dian)力(li)(li)保障。
三是(shi)統籌協調全(quan)網資(zi)源(yuan)，農(nong)村電(dian)(dian)網的(de)(de)抗(kang)(kang)風(feng)(feng)險能力大幅(fu)提升。中央電(dian)(dian)網企(qi)業發揮全(quan)網一盤棋的(de)(de)優勢，在強化農(nong)村電(dian)(dian)網的(de)(de)技術防災(zai)(zai)能力建設的(de)(de)同時，依(yi)托自身較為(wei)完善的(de)(de)管控體(ti)系和(he)應急機制，使農(nong)村電(dian)(dian)網的(de)(de)抗(kang)(kang)災(zai)(zai)、救災(zai)(zai)和(he)災(zai)(zai)后恢復能力顯著提高。如臺(tai)風(feng)(feng)“莫蘭蒂”、“鯰魚(yu)”短(duan)時間內(nei)連續登陸福建，造成疊加災(zai)(zai)害影(ying)響，在道路沖毀、通訊中斷等不利條(tiao)件(jian)下，中央電(dian)(dian)網企(qi)業協調電(dian)(dian)力搶(qiang)修隊伍和(he)資(zi)源(yuan)，僅用(yong)了常(chang)規搶(qiang)修時間的(de)(de)三分之(zhi)一就全(quan)面恢復了數百萬受災(zai)(zai)用(yong)戶的(de)(de)供電(dian)(dian)，為(wei)當地(di)快速開(kai)展救災(zai)(zai)和(he)災(zai)(zai)后重建提供了有力保障。
四是(shi)加強黨(dang)的(de)建設(she)，暢(chang)通基層(ceng)電(dian)(dian)(dian)網企(qi)(qi)業(ye)服(fu)務群(qun)眾的(de)“最(zui)后一(yi)公里”。農村電(dian)(dian)(dian)網是(shi)整(zheng)個(ge)電(dian)(dian)(dian)網的(de)“神經(jing)末(mo)梢”，針(zhen)對(dui)部分農電(dian)(dian)(dian)企(qi)(qi)業(ye)黨(dang)的(de)建設(she)存在弱(ruo)化、淡化、虛化、邊緣化的(de)問題，中央(yang)電(dian)(dian)(dian)網企(qi)(qi)業(ye)按照“全面覆蓋、有(you)效覆蓋”的(de)要求，與產權劃(hua)轉(zhuan)同步健全黨(dang)的(de)組(zu)織，將位(wei)于供電(dian)(dian)(dian)一(yi)線(xian)的(de)每(mei)個(ge)班組(zu)、農村基層(ceng)的(de)每(mei)個(ge)服(fu)務點都建成(cheng)聯系群(qun)眾、服(fu)務群(qun)眾的(de)“前(qian)言哨(shao)”和(he)“連(lian)心(xin)橋”。如國(guo)家電(dian)(dian)(dian)網四川資陽公司基層(ceng)服(fu)務點發現春節(jie)(jie)期間農村外(wai)出(chu)務工人(ren)員集中返鄉(xiang)，用電(dian)(dian)(dian)負荷(he)急劇增加，容易出(chu)現電(dian)(dian)(dian)壓不穩(wen)、斷電(dian)(dian)(dian)等情況，他(ta)們通過提前(qian)掌握外(wai)出(chu)務工人(ren)員返鄉(xiang)時間，安排移動(dong)發電(dian)(dian)(dian)機和(he)變壓器，確保群(qun)眾春節(jie)(jie)期間用電(dian)(dian)(dian)需求。
目前我國正在(zai)推進(jin)新一輪電力體制(zhi)改(gai)革，國企(qi)國資改(gai)革也(ye)進(jin)入(ru)了(le)深入(ru)推進(jin)階(jie)段，為進(jin)一步鞏(gong)固(gu)農網(wang)改(gai)革成果，提(ti)升(sheng)服(fu)務(wu)“三農”水平，提(ti)出(chu)如(ru)下建議(yi)：
一(yi)(yi)(yi)(yi)是(shi)進一(yi)(yi)(yi)(yi)步(bu)健全電(dian)(dian)力普(pu)(pu)遍服務(wu)(wu)補償(chang)機制(zhi)(zhi)(zhi)。我國大多(duo)農(nong)(nong)村地區(qu)特(te)別是(shi)西部、東北一(yi)(yi)(yi)(yi)些地區(qu)，地廣(guang)人稀，經濟社會發(fa)展相對(dui)滯(zhi)后(hou)，農(nong)(nong)村供電(dian)(dian)電(dian)(dian)量規模(mo)小，供電(dian)(dian)業(ye)務(wu)(wu)點多(duo)面(mian)(mian)廣(guang)線長，單(dan)位輸配(pei)電(dian)(dian)成(cheng)本高(gao)，供電(dian)(dian)收(shou)入和(he)(he)(he)成(cheng)本不匹配(pei)，具(ju)有典型的(de)(de)普(pu)(pu)遍服務(wu)(wu)屬性(xing)。一(yi)(yi)(yi)(yi)直(zhi)以(yi)來(lai)中央電(dian)(dian)網(wang)(wang)企業(ye)通過工業(ye)和(he)(he)(he)城市用(yong)戶補貼農(nong)(nong)村用(yong)戶的(de)(de)交叉(cha)(cha)補貼方式(shi)支持(chi)農(nong)(nong)村電(dian)(dian)網(wang)(wang)發(fa)展。如2015年，南方電(dian)(dian)網(wang)(wang)公(gong)司(si)260家(jia)獨立(li)核算(suan)的(de)(de)農(nong)(nong)電(dian)(dian)企業(ye)有65家(jia)虧損(sun)，占25%，如果剔除“電(dian)(dian)價(jia)交叉(cha)(cha)補貼”等扶持(chi)因(yin)素，虧損(sun)面(mian)(mian)將擴(kuo)大到92%。建(jian)議(yi)在(zai)(zai)新一(yi)(yi)(yi)(yi)輪(lun)電(dian)(dian)力體(ti)制(zhi)(zhi)(zhi)改革中，一(yi)(yi)(yi)(yi)方面(mian)(mian)進一(yi)(yi)(yi)(yi)步(bu)健全普(pu)(pu)遍服務(wu)(wu)補償(chang)機制(zhi)(zhi)(zhi)，切實(shi)保(bao)障(zhang)各類交叉(cha)(cha)補貼資(zi)金來(lai)源，并探(tan)索在(zai)(zai)國家(jia)層面(mian)(mian)建(jian)立(li)普(pu)(pu)遍服務(wu)(wu)基金，專項用(yong)于“老少(shao)邊(bian)窮”地區(qu)電(dian)(dian)網(wang)(wang)企業(ye)的(de)(de)電(dian)(dian)力普(pu)(pu)遍服務(wu)(wu)成(cheng)本補償(chang)。另一(yi)(yi)(yi)(yi)方面(mian)(mian)在(zai)(zai)政府價(jia)格部門(men)按照“準(zhun)許(xu)成(cheng)本加合(he)理收(shou)益(yi)”機制(zhi)(zhi)(zhi)核定輸配(pei)電(dian)(dian)價(jia)時(shi)，針對(dui)農(nong)(nong)村電(dian)(dian)網(wang)(wang)運(yun)營發(fa)展困難的(de)(de)特(te)殊情(qing)況，適(shi)當提高(gao)農(nong)(nong)網(wang)(wang)資(zi)產的(de)(de)定價(jia)準(zhun)許(xu)成(cheng)本和(he)(he)(he)收(shou)益(yi)水平，支持(chi)和(he)(he)(he)保(bao)障(zhang)農(nong)(nong)網(wang)(wang)的(de)(de)正常運(yun)營和(he)(he)(he)發(fa)展需要。
二(er)是(shi)進(jin)一(yi)(yi)(yi)(yi)步(bu)理順農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)力管(guan)理體(ti)制。目前，少數地(di)方仍由“自(zi)供自(zi)管(guan)”農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業(ye)負責(ze)供電(dian)(dian)(dian)(dian)，造(zao)成(cheng)(cheng)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網的(de)(de)實(shi)際分割，影響(xiang)了(le)電(dian)(dian)(dian)(dian)網的(de)(de)整體(ti)統(tong)一(yi)(yi)(yi)(yi)規(gui)劃(hua)和(he)建(jian)(jian)設(she)；還(huan)有些地(di)方新(xin)成(cheng)(cheng)立了(le)“自(zi)供自(zi)管(guan)”企(qi)業(ye)，專(zhuan)門(men)負責(ze)縣域(yu)內的(de)(de)工業(ye)園區、工業(ye)企(qi)業(ye)等存量(liang)用電(dian)(dian)(dian)(dian)大戶(hu)(hu)，無序建(jian)(jian)設(she)高(gao)等級輸(shu)電(dian)(dian)(dian)(dian)網絡(luo)。這(zhe)樣容易造(zao)成(cheng)(cheng)重復(fu)建(jian)(jian)設(she)、投資(zi)浪(lang)費，也(ye)會形成(cheng)(cheng)“用電(dian)(dian)(dian)(dian)大戶(hu)(hu)人(ren)人(ren)搶，普通用戶(hu)(hu)無人(ren)管(guan)”的(de)(de)局面。建(jian)(jian)議在(zai)新(xin)一(yi)(yi)(yi)(yi)輪電(dian)(dian)(dian)(dian)力體(ti)制改革中，考慮電(dian)(dian)(dian)(dian)網具有自(zi)然(ran)壟(long)斷屬性、尊重農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網發(fa)展的(de)(de)客觀規(gui)律，從(cong)更有利于做(zuo)好農(nong)(nong)(nong)村(cun)供電(dian)(dian)(dian)(dian)服務、更有利于促進(jin)農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)業(ye)持續(xu)健康(kang)發(fa)展的(de)(de)角度出發(fa)，支持和(he)推動中央(yang)電(dian)(dian)(dian)(dian)網企(qi)業(ye)充分發(fa)揮規(gui)模(mo)優勢和(he)專(zhuan)業(ye)優勢，采(cai)取產(chan)權劃(hua)轉等多種方式，進(jin)一(yi)(yi)(yi)(yi)步(bu)理順農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)力管(guan)理體(ti)制，提供大電(dian)(dian)(dian)(dian)網延伸服務，實(shi)現電(dian)(dian)(dian)(dian)網統(tong)一(yi)(yi)(yi)(yi)規(gui)劃(hua)、統(tong)一(yi)(yi)(yi)(yi)建(jian)(jian)設(she)、統(tong)一(yi)(yi)(yi)(yi)運(yun)營、統(tong)一(yi)(yi)(yi)(yi)管(guan)理，保障好農(nong)(nong)(nong)村(cun)地(di)區供電(dian)(dian)(dian)(dian)。
三是(shi)推(tui)(tui)動(dong)建(jian)(jian)立(li)支持(chi)縣(xian)域(yu)經(jing)濟(ji)發(fa)展的財政(zheng)(zheng)稅收(shou)機制。為(wei)支持(chi)農村電網(wang)(wang)發(fa)展，履行電網(wang)(wang)企業(ye)提供普遍(bian)服務的職責，中央電網(wang)(wang)企業(ye)認真落實國務院及國資委“瘦身(shen)健體”工(gong)作要求，穩步推(tui)(tui)進(jin)縣(xian)級供電企業(ye)“子改分”工(gong)作。縣(xian)級供電企業(ye)“子改分”后，原本屬于(yu)縣(xian)級地(di)方財政(zheng)(zheng)收(shou)入來源的縣(xian)級供電企業(ye)所得稅將調(diao)整至(zhi)各(ge)省級電網(wang)(wang)公司本部(bu)所在(zai)地(di)繳納，有關縣(xian)級區域(yu)現有利(li)益可(ke)能受(shou)到較大(da)影響。為(wei)支持(chi)縣(xian)域(yu)經(jing)濟(ji)發(fa)展，建(jian)(jian)議采取財政(zheng)(zheng)轉移(yi)支付(fu)等方式，將省級電網(wang)(wang)公司所繳稅額在(zai)省、縣(xian)兩級合(he)理分配。