文(wen)章來源(yuan)：產權局 發布時間：2018-03-29
長期以來，我國縣及縣以下的(de)廣大農村地區形成(cheng)了三(san)類主體(ti)從事供(gong)(gong)電(dian)的(de)局面(mian)，即國家(jia)電(dian)網(wang)(wang)(wang)公司(si)和(he)(he)南方(fang)電(dian)網(wang)(wang)(wang)公司(si)（以下統(tong)稱中(zhong)央電(dian)網(wang)(wang)(wang)企(qi)(qi)(qi)業(ye)）全資的(de)“直供(gong)(gong)直管”供(gong)(gong)電(dian)企(qi)(qi)(qi)業(ye)、由中(zhong)央電(dian)網(wang)(wang)(wang)企(qi)(qi)(qi)業(ye)“代(dai)管”的(de)縣國有供(gong)(gong)電(dian)企(qi)(qi)(qi)業(ye)、與中(zhong)央電(dian)網(wang)(wang)(wang)企(qi)(qi)(qi)業(ye)既無產權關(guan)系也無管理關(guan)系的(de)其他“自供(gong)(gong)自管”企(qi)(qi)(qi)業(ye)。這一農電(dian)體(ti)制導致城鄉電(dian)網(wang)(wang)(wang)之(zhi)間難以真正實(shi)現統(tong)籌規劃和(he)(he)建設，加(jia)之(zhi)部(bu)分(fen)“代(dai)管”和(he)(he)“自供(gong)(gong)自管”企(qi)(qi)(qi)業(ye)自我積(ji)累(lei)能力(li)差(cha)，農村電(dian)網(wang)(wang)(wang)投資欠賬多、管理基礎薄弱，農村電(dian)網(wang)(wang)(wang)發(fa)展不(bu)平衡(heng)的(de)矛盾日(ri)益突出，成(cheng)為(wei)制約(yue)農村經濟(ji)社會發(fa)展的(de)短板之(zhi)一。
為貫徹落實(shi)國家農(nong)村電(dian)(dian)(dian)(dian)力體(ti)制(zhi)改革部署，補齊農(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)的(de)短板，近年來，國務院國資委指導(dao)中(zhong)央電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)積極爭(zheng)取(qu)地(di)方政府的(de)支持，克服地(di)方農(nong)電(dian)(dian)(dian)(dian)企業(ye)普遍(bian)經營效益差、歷史負(fu)擔(dan)沉重、人員安置壓力大(da)等困難(nan)，通(tong)過直(zhi)接劃轉(zhuan)、先(xian)代管再劃轉(zhuan)、先(xian)合資控股再劃轉(zhuan)等路徑，累計上(shang)收29個省（自治區）農(nong)電(dian)(dian)(dian)(dian)企業(ye)1056戶(hu)，涉及資產總額3276億元、凈資產977億元。目前，全(quan)國2163個涉及農(nong)網(wang)(wang)的(de)行政縣區中(zhong)，1979個已實(shi)現“直(zhi)供直(zhi)管”。絕大(da)部分縣域農(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)都納入(ru)了(le)全(quan)國電(dian)(dian)(dian)(dian)網(wang)(wang)“大(da)盤子”，從根本上(shang)破除了(le)制(zhi)約農(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)發展的(de)體(ti)制(zhi)障礙，“大(da)、小電(dian)(dian)(dian)(dian)網(wang)(wang)”真(zhen)正實(shi)現了(le)統一(yi)規劃、統一(yi)建設(she)、統一(yi)運營、統一(yi)管理。
一(yi)是推進無(wu)(wu)電(dian)(dian)(dian)地區電(dian)(dian)(dian)力(li)建設(she)，解決(jue)了無(wu)(wu)電(dian)(dian)(dian)人(ren)口的(de)用(yong)(yong)電(dian)(dian)(dian)問題。中央(yang)電(dian)(dian)(dian)網企業克服(fu)惡(e)劣的(de)地質和(he)交通條件，加大(da)資金投入，探索“發(fa)供一(yi)體”的(de)特(te)殊供電(dian)(dian)(dian)模式，累計完(wan)成無(wu)(wu)電(dian)(dian)(dian)地區電(dian)(dian)(dian)力(li)建設(she)投資438億元，解決(jue)了248萬戶(hu)無(wu)(wu)電(dian)(dian)(dian)家庭、982萬無(wu)(wu)電(dian)(dian)(dian)人(ren)口的(de)用(yong)(yong)電(dian)(dian)(dian)問題。
二(er)(er)是提(ti)高(gao)供(gong)(gong)電(dian)能(neng)(neng)力和質量(liang)，為(wei)脫貧(pin)(pin)攻堅(jian)(jian)奠定堅(jian)(jian)實(shi)基礎(chu)。“十二(er)(er)五”期間，中(zhong)央電(dian)網(wang)(wang)企業(ye)累計完(wan)成農網(wang)(wang)投資(zi)6048億(yi)元，農村電(dian)網(wang)(wang)戶均(jun)配電(dian)容量(liang)增加70%，解決(jue)了中(zhong)西(xi)部地區45個(ge)縣域(yu)(yu)電(dian)網(wang)(wang)“孤網(wang)(wang)運行”問題(ti)、148個(ge)縣域(yu)(yu)電(dian)網(wang)(wang)與主網(wang)(wang)聯(lian)系薄弱問題(ti)，農村供(gong)(gong)電(dian)可靠率達到(dao)(dao)99.7%以(yi)上(shang)，用(yong)戶年均(jun)停電(dian)時間由2010年的30小時以(yi)上(shang)縮短至15小時左右，農村電(dian)網(wang)(wang)供(gong)(gong)電(dian)能(neng)(neng)力和質量(liang)顯著提(ti)升。對(dui)供(gong)(gong)電(dian)區域(yu)(yu)內567個(ge)國(guo)家(jia)級貧(pin)(pin)困(kun)縣農網(wang)(wang)投資(zi)1622億(yi)元，貧(pin)(pin)困(kun)農村地區電(dian)力“卡脖子”問題(ti)得(de)到(dao)(dao)有效治理，過去困(kun)擾農村地區發展的頻繁停電(dian)、電(dian)壓不穩(wen)現象得(de)到(dao)(dao)根本扭轉，為(wei)脫貧(pin)(pin)攻堅(jian)(jian)提(ti)供(gong)(gong)了堅(jian)(jian)實(shi)電(dian)力保障。
三是統(tong)籌協調全網(wang)資源，農(nong)(nong)村(cun)電網(wang)的(de)抗風(feng)險(xian)能力(li)大幅提升。中央電網(wang)企業發揮全網(wang)一(yi)盤(pan)棋(qi)的(de)優勢，在強(qiang)化農(nong)(nong)村(cun)電網(wang)的(de)技術防災(zai)能力(li)建(jian)設的(de)同時(shi)，依托(tuo)自(zi)身較為完善的(de)管控體系和(he)應急機(ji)制(zhi)，使農(nong)(nong)村(cun)電網(wang)的(de)抗災(zai)、救災(zai)和(he)災(zai)后恢復能力(li)顯著提高。如臺(tai)風(feng)“莫(mo)蘭蒂”、“鯰(nian)魚”短(duan)時(shi)間內連續登(deng)陸福建(jian)，造成(cheng)疊(die)加災(zai)害影響，在道路(lu)沖毀、通訊中斷等(deng)不利條件下(xia)，中央電網(wang)企業協調電力(li)搶修(xiu)隊伍和(he)資源，僅用了(le)常規(gui)搶修(xiu)時(shi)間的(de)三分之一(yi)就全面(mian)恢復了(le)數(shu)百萬(wan)受災(zai)用戶的(de)供電，為當(dang)地快(kuai)速開展(zhan)救災(zai)和(he)災(zai)后重(zhong)建(jian)提供了(le)有力(li)保(bao)障。
四(si)是加強黨(dang)的(de)建設，暢通(tong)(tong)基層電(dian)(dian)(dian)網企業(ye)(ye)服務群眾(zhong)的(de)“最后一公(gong)里”。農(nong)村(cun)電(dian)(dian)(dian)網是整個電(dian)(dian)(dian)網的(de)“神經末梢”，針對部分農(nong)電(dian)(dian)(dian)企業(ye)(ye)黨(dang)的(de)建設存在弱(ruo)化(hua)、淡化(hua)、虛化(hua)、邊(bian)緣化(hua)的(de)問題，中(zhong)央電(dian)(dian)(dian)網企業(ye)(ye)按(an)照“全(quan)面覆蓋(gai)、有效(xiao)覆蓋(gai)”的(de)要求，與產權劃轉同(tong)步(bu)健全(quan)黨(dang)的(de)組織，將位于(yu)供電(dian)(dian)(dian)一線的(de)每(mei)個班組、農(nong)村(cun)基層的(de)每(mei)個服務點都建成(cheng)聯系群眾(zhong)、服務群眾(zhong)的(de)“前言哨(shao)”和(he)“連心(xin)橋(qiao)”。如國(guo)家電(dian)(dian)(dian)網四(si)川資陽公(gong)司基層服務點發現春節期(qi)間農(nong)村(cun)外(wai)出(chu)務工(gong)人(ren)員集中(zhong)返鄉，用電(dian)(dian)(dian)負(fu)荷急劇增(zeng)加，容易出(chu)現電(dian)(dian)(dian)壓不穩(wen)、斷電(dian)(dian)(dian)等情況，他們(men)通(tong)(tong)過提前掌握外(wai)出(chu)務工(gong)人(ren)員返鄉時間，安排移(yi)動發電(dian)(dian)(dian)機和(he)變壓器，確保群眾(zhong)春節期(qi)間用電(dian)(dian)(dian)需(xu)求。
目前我(wo)國(guo)正在推(tui)進新一(yi)(yi)輪(lun)電力體制改革，國(guo)企國(guo)資改革也進入了深(shen)入推(tui)進階段，為進一(yi)(yi)步鞏(gong)固農(nong)(nong)網改革成果，提升(sheng)服務“三農(nong)(nong)”水(shui)平(ping)，提出如下建(jian)議：
一(yi)(yi)是(shi)進(jin)一(yi)(yi)步健全電(dian)(dian)(dian)(dian)(dian)力(li)(li)普(pu)遍(bian)(bian)服(fu)(fu)務補(bu)償(chang)機制(zhi)。我(wo)國(guo)大(da)多農(nong)村(cun)地區特(te)別(bie)是(shi)西部、東北一(yi)(yi)些地區，地廣(guang)人稀，經濟社(she)會發(fa)(fa)展(zhan)(zhan)相對滯(zhi)后(hou)，農(nong)村(cun)供電(dian)(dian)(dian)(dian)(dian)電(dian)(dian)(dian)(dian)(dian)量規模小，供電(dian)(dian)(dian)(dian)(dian)業務點多面廣(guang)線(xian)長，單位輸配電(dian)(dian)(dian)(dian)(dian)成本高(gao)，供電(dian)(dian)(dian)(dian)(dian)收入和(he)成本不匹配，具(ju)有典型的(de)普(pu)遍(bian)(bian)服(fu)(fu)務屬性。一(yi)(yi)直(zhi)以來中央電(dian)(dian)(dian)(dian)(dian)網(wang)企(qi)業通過工業和(he)城(cheng)市用戶(hu)補(bu)貼農(nong)村(cun)用戶(hu)的(de)交叉(cha)補(bu)貼方式(shi)支持農(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)發(fa)(fa)展(zhan)(zhan)。如2015年(nian)，南方電(dian)(dian)(dian)(dian)(dian)網(wang)公司260家(jia)獨立核算的(de)農(nong)電(dian)(dian)(dian)(dian)(dian)企(qi)業有65家(jia)虧損，占25%，如果(guo)剔除(chu)“電(dian)(dian)(dian)(dian)(dian)價(jia)交叉(cha)補(bu)貼”等扶持因素，虧損面將擴大(da)到92%。建(jian)議在(zai)新一(yi)(yi)輪電(dian)(dian)(dian)(dian)(dian)力(li)(li)體(ti)制(zhi)改革中，一(yi)(yi)方面進(jin)一(yi)(yi)步健全普(pu)遍(bian)(bian)服(fu)(fu)務補(bu)償(chang)機制(zhi)，切實保障各類(lei)交叉(cha)補(bu)貼資(zi)金來源，并探索在(zai)國(guo)家(jia)層(ceng)面建(jian)立普(pu)遍(bian)(bian)服(fu)(fu)務基金，專項(xiang)用于(yu)“老少邊窮”地區電(dian)(dian)(dian)(dian)(dian)網(wang)企(qi)業的(de)電(dian)(dian)(dian)(dian)(dian)力(li)(li)普(pu)遍(bian)(bian)服(fu)(fu)務成本補(bu)償(chang)。另一(yi)(yi)方面在(zai)政(zheng)府價(jia)格部門按照(zhao)“準許成本加合理收益”機制(zhi)核定輸配電(dian)(dian)(dian)(dian)(dian)價(jia)時，針對農(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網(wang)運營發(fa)(fa)展(zhan)(zhan)困難的(de)特(te)殊(shu)情(qing)況，適當提(ti)高(gao)農(nong)網(wang)資(zi)產的(de)定價(jia)準許成本和(he)收益水平，支持和(he)保障農(nong)網(wang)的(de)正常運營和(he)發(fa)(fa)展(zhan)(zhan)需要。
二(er)是進一(yi)步(bu)理(li)(li)順(shun)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)力(li)(li)管(guan)(guan)理(li)(li)體制。目(mu)前，少數地方仍由“自(zi)(zi)供(gong)(gong)自(zi)(zi)管(guan)(guan)”農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)(qi)業負責供(gong)(gong)電(dian)(dian)(dian)(dian)，造成農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網的(de)(de)(de)實際(ji)分割，影響了電(dian)(dian)(dian)(dian)網的(de)(de)(de)整體統(tong)一(yi)規(gui)劃(hua)(hua)和建(jian)(jian)設(she)；還有(you)(you)些(xie)地方新(xin)成立(li)了“自(zi)(zi)供(gong)(gong)自(zi)(zi)管(guan)(guan)”企(qi)(qi)業，專門負責縣(xian)域內的(de)(de)(de)工業園區(qu)、工業企(qi)(qi)業等存(cun)量用電(dian)(dian)(dian)(dian)大戶，無(wu)序建(jian)(jian)設(she)高等級輸電(dian)(dian)(dian)(dian)網絡。這樣容(rong)易造成重(zhong)復建(jian)(jian)設(she)、投資浪(lang)費，也會形成“用電(dian)(dian)(dian)(dian)大戶人(ren)人(ren)搶(qiang)，普(pu)通(tong)用戶無(wu)人(ren)管(guan)(guan)”的(de)(de)(de)局面。建(jian)(jian)議在新(xin)一(yi)輪電(dian)(dian)(dian)(dian)力(li)(li)體制改革中，考(kao)慮電(dian)(dian)(dian)(dian)網具有(you)(you)自(zi)(zi)然壟斷屬性、尊重(zhong)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)網發(fa)展(zhan)的(de)(de)(de)客觀規(gui)律，從更有(you)(you)利于做好農(nong)(nong)(nong)村(cun)供(gong)(gong)電(dian)(dian)(dian)(dian)服(fu)務(wu)、更有(you)(you)利于促進農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企(qi)(qi)業持續健康發(fa)展(zhan)的(de)(de)(de)角度出發(fa)，支持和推(tui)動中央(yang)電(dian)(dian)(dian)(dian)網企(qi)(qi)業充分發(fa)揮規(gui)模優勢和專業優勢，采取產(chan)權(quan)劃(hua)(hua)轉等多種(zhong)方式，進一(yi)步(bu)理(li)(li)順(shun)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)力(li)(li)管(guan)(guan)理(li)(li)體制，提供(gong)(gong)大電(dian)(dian)(dian)(dian)網延伸服(fu)務(wu)，實現電(dian)(dian)(dian)(dian)網統(tong)一(yi)規(gui)劃(hua)(hua)、統(tong)一(yi)建(jian)(jian)設(she)、統(tong)一(yi)運營、統(tong)一(yi)管(guan)(guan)理(li)(li)，保障(zhang)好農(nong)(nong)(nong)村(cun)地區(qu)供(gong)(gong)電(dian)(dian)(dian)(dian)。
三是推(tui)動建立支持(chi)縣(xian)域經(jing)濟發(fa)展(zhan)的財政稅(shui)收(shou)機制。為支持(chi)農村電(dian)網(wang)發(fa)展(zhan)，履(lv)行電(dian)網(wang)企業提(ti)供普(pu)遍服務(wu)的職責，中央電(dian)網(wang)企業認真落實國務(wu)院及國資委“瘦身健體”工作(zuo)要求，穩步(bu)推(tui)進縣(xian)級(ji)供電(dian)企業“子改分”工作(zuo)。縣(xian)級(ji)供電(dian)企業“子改分”后，原本(ben)屬于縣(xian)級(ji)地方(fang)(fang)財政收(shou)入來源(yuan)的縣(xian)級(ji)供電(dian)企業所得(de)稅(shui)將調整至各省(sheng)級(ji)電(dian)網(wang)公(gong)司本(ben)部所在地繳納，有(you)關縣(xian)級(ji)區(qu)域現有(you)利(li)益(yi)可能受到較大影響。為支持(chi)縣(xian)域經(jing)濟發(fa)展(zhan)，建議采(cai)取(qu)財政轉移(yi)支付等方(fang)(fang)式，將省(sheng)級(ji)電(dian)網(wang)公(gong)司所繳稅(shui)額在省(sheng)、縣(xian)兩級(ji)合理(li)分配。