文章(zhang)來源：產權(quan)局 發布時間：2018-03-29
長期以(yi)來，我國(guo)縣及縣以(yi)下(xia)(xia)的(de)(de)廣大農村(cun)地(di)區形成了三類主體從事供(gong)(gong)(gong)電(dian)(dian)的(de)(de)局面，即(ji)國(guo)家電(dian)(dian)網公司(si)和南方電(dian)(dian)網公司(si)（以(yi)下(xia)(xia)統稱中央(yang)電(dian)(dian)網企(qi)業(ye)）全資(zi)(zi)的(de)(de)“直供(gong)(gong)(gong)直管(guan)(guan)(guan)”供(gong)(gong)(gong)電(dian)(dian)企(qi)業(ye)、由中央(yang)電(dian)(dian)網企(qi)業(ye)“代管(guan)(guan)(guan)”的(de)(de)縣國(guo)有供(gong)(gong)(gong)電(dian)(dian)企(qi)業(ye)、與(yu)中央(yang)電(dian)(dian)網企(qi)業(ye)既無產(chan)權(quan)關(guan)系(xi)也無管(guan)(guan)(guan)理關(guan)系(xi)的(de)(de)其他“自(zi)(zi)供(gong)(gong)(gong)自(zi)(zi)管(guan)(guan)(guan)”企(qi)業(ye)。這一農電(dian)(dian)體制(zhi)導致城鄉電(dian)(dian)網之間難以(yi)真正實現統籌(chou)規劃和建設(she)，加之部分“代管(guan)(guan)(guan)”和“自(zi)(zi)供(gong)(gong)(gong)自(zi)(zi)管(guan)(guan)(guan)”企(qi)業(ye)自(zi)(zi)我積(ji)累能力(li)差，農村(cun)電(dian)(dian)網投資(zi)(zi)欠(qian)賬多、管(guan)(guan)(guan)理基礎(chu)薄弱，農村(cun)電(dian)(dian)網發展不平衡的(de)(de)矛盾日(ri)益突(tu)出，成為制(zhi)約農村(cun)經濟社(she)會發展的(de)(de)短板之一。
為貫徹落實(shi)國家農村(cun)電(dian)(dian)(dian)(dian)力(li)體制改(gai)革部署，補齊農村(cun)電(dian)(dian)(dian)(dian)網(wang)的(de)短板，近年來，國務院國資委(wei)指導中(zhong)央電(dian)(dian)(dian)(dian)網(wang)企業(ye)積極爭取地(di)方(fang)政府的(de)支持(chi)，克(ke)服地(di)方(fang)農電(dian)(dian)(dian)(dian)企業(ye)普遍(bian)經營效益差、歷(li)史負擔沉重(zhong)、人員安置壓力(li)大等困難，通過直接劃(hua)轉、先代管(guan)再劃(hua)轉、先合資控股(gu)再劃(hua)轉等路徑，累計上收29個省（自(zi)治區）農電(dian)(dian)(dian)(dian)企業(ye)1056戶，涉及(ji)資產總(zong)額3276億元(yuan)、凈資產977億元(yuan)。目前，全(quan)國2163個涉及(ji)農網(wang)的(de)行(xing)政縣(xian)區中(zhong)，1979個已實(shi)現(xian)“直供直管(guan)”。絕(jue)大部分縣(xian)域農村(cun)電(dian)(dian)(dian)(dian)網(wang)都(dou)納入了全(quan)國電(dian)(dian)(dian)(dian)網(wang)“大盤子(zi)”，從根本(ben)上破除了制約農村(cun)電(dian)(dian)(dian)(dian)網(wang)發展的(de)體制障礙，“大、小(xiao)電(dian)(dian)(dian)(dian)網(wang)”真正實(shi)現(xian)了統一(yi)規劃(hua)、統一(yi)建設、統一(yi)運營、統一(yi)管(guan)理。
一(yi)是推進無(wu)電(dian)(dian)地(di)(di)區電(dian)(dian)力建設(she)，解決了無(wu)電(dian)(dian)人(ren)口(kou)的(de)用(yong)(yong)電(dian)(dian)問題。中央(yang)電(dian)(dian)網企業克服惡(e)劣(lie)的(de)地(di)(di)質和交(jiao)通條件，加大(da)資金(jin)投(tou)入，探(tan)索(suo)“發(fa)供一(yi)體”的(de)特殊供電(dian)(dian)模式，累計完成無(wu)電(dian)(dian)地(di)(di)區電(dian)(dian)力建設(she)投(tou)資438億元，解決了248萬(wan)戶(hu)無(wu)電(dian)(dian)家庭(ting)、982萬(wan)無(wu)電(dian)(dian)人(ren)口(kou)的(de)用(yong)(yong)電(dian)(dian)問題。
二是(shi)提高供(gong)電(dian)(dian)(dian)(dian)能(neng)力(li)(li)和(he)質(zhi)量，為脫貧(pin)(pin)(pin)攻(gong)堅(jian)奠定堅(jian)實基礎。“十二五”期間，中(zhong)央電(dian)(dian)(dian)(dian)網(wang)企業累計完成農(nong)網(wang)投(tou)資6048億(yi)元(yuan)，農(nong)村電(dian)(dian)(dian)(dian)網(wang)戶均(jun)配電(dian)(dian)(dian)(dian)容量增(zeng)加70%，解決了中(zhong)西部地(di)(di)區(qu)45個縣(xian)(xian)域(yu)電(dian)(dian)(dian)(dian)網(wang)“孤網(wang)運行”問題(ti)、148個縣(xian)(xian)域(yu)電(dian)(dian)(dian)(dian)網(wang)與主(zhu)網(wang)聯系薄(bo)弱(ruo)問題(ti)，農(nong)村供(gong)電(dian)(dian)(dian)(dian)可靠率達到(dao)99.7%以上，用戶年(nian)均(jun)停(ting)電(dian)(dian)(dian)(dian)時間由2010年(nian)的30小時以上縮短至15小時左(zuo)右，農(nong)村電(dian)(dian)(dian)(dian)網(wang)供(gong)電(dian)(dian)(dian)(dian)能(neng)力(li)(li)和(he)質(zhi)量顯著(zhu)提升。對供(gong)電(dian)(dian)(dian)(dian)區(qu)域(yu)內567個國家(jia)級(ji)貧(pin)(pin)(pin)困(kun)縣(xian)(xian)農(nong)網(wang)投(tou)資1622億(yi)元(yuan)，貧(pin)(pin)(pin)困(kun)農(nong)村地(di)(di)區(qu)電(dian)(dian)(dian)(dian)力(li)(li)“卡脖(bo)子”問題(ti)得(de)到(dao)有效治理(li)，過去困(kun)擾(rao)農(nong)村地(di)(di)區(qu)發展的頻繁停(ting)電(dian)(dian)(dian)(dian)、電(dian)(dian)(dian)(dian)壓不穩現(xian)象得(de)到(dao)根本扭(niu)轉(zhuan)，為脫貧(pin)(pin)(pin)攻(gong)堅(jian)提供(gong)了堅(jian)實電(dian)(dian)(dian)(dian)力(li)(li)保障。
三是(shi)統籌協調全(quan)網(wang)資源，農村(cun)電(dian)(dian)網(wang)的(de)抗風險能力大幅提升。中央(yang)電(dian)(dian)網(wang)企業(ye)發(fa)揮全(quan)網(wang)一盤(pan)棋的(de)優勢，在強化(hua)農村(cun)電(dian)(dian)網(wang)的(de)技術防災(zai)(zai)(zai)(zai)能力建設的(de)同(tong)時，依托自(zi)身較為完善的(de)管控體(ti)系(xi)和(he)(he)應急機(ji)制，使(shi)農村(cun)電(dian)(dian)網(wang)的(de)抗災(zai)(zai)(zai)(zai)、救(jiu)災(zai)(zai)(zai)(zai)和(he)(he)災(zai)(zai)(zai)(zai)后恢復能力顯著提高。如臺風“莫蘭蒂”、“鯰魚”短時間(jian)內連續登陸福(fu)建，造成疊(die)加災(zai)(zai)(zai)(zai)害影響，在道路沖(chong)毀、通(tong)訊中斷等不利條件下，中央(yang)電(dian)(dian)網(wang)企業(ye)協調電(dian)(dian)力搶修隊伍和(he)(he)資源，僅用了常規搶修時間(jian)的(de)三分之一就全(quan)面(mian)恢復了數(shu)百萬受災(zai)(zai)(zai)(zai)用戶的(de)供電(dian)(dian)，為當地快速開(kai)展救(jiu)災(zai)(zai)(zai)(zai)和(he)(he)災(zai)(zai)(zai)(zai)后重建提供了有力保障。
四(si)(si)是(shi)(shi)加強黨的建(jian)設(she)，暢通(tong)基層(ceng)電(dian)(dian)(dian)網(wang)企(qi)業(ye)服務(wu)群眾的“最后一公(gong)里”。農(nong)村電(dian)(dian)(dian)網(wang)是(shi)(shi)整個(ge)電(dian)(dian)(dian)網(wang)的“神經(jing)末梢”，針對部分(fen)農(nong)電(dian)(dian)(dian)企(qi)業(ye)黨的建(jian)設(she)存在弱化(hua)、淡化(hua)、虛化(hua)、邊緣化(hua)的問題，中央(yang)電(dian)(dian)(dian)網(wang)企(qi)業(ye)按(an)照“全(quan)面覆蓋(gai)、有效覆蓋(gai)”的要求，與(yu)產權劃轉同步健全(quan)黨的組織(zhi)，將位于(yu)供電(dian)(dian)(dian)一線的每個(ge)班組、農(nong)村基層(ceng)的每個(ge)服務(wu)點都建(jian)成聯系群眾、服務(wu)群眾的“前言哨”和“連心橋”。如國(guo)家電(dian)(dian)(dian)網(wang)四(si)(si)川資(zi)陽公(gong)司基層(ceng)服務(wu)點發(fa)現春(chun)節期間(jian)農(nong)村外(wai)出務(wu)工人員集(ji)中返鄉，用電(dian)(dian)(dian)負(fu)荷急劇增(zeng)加，容(rong)易出現電(dian)(dian)(dian)壓不(bu)穩、斷電(dian)(dian)(dian)等情(qing)況，他們(men)通(tong)過(guo)提(ti)前掌握外(wai)出務(wu)工人員返鄉時間(jian)，安排移動(dong)發(fa)電(dian)(dian)(dian)機(ji)和變壓器，確保群眾春(chun)節期間(jian)用電(dian)(dian)(dian)需求。
目(mu)前我國正在(zai)推進新一輪電力體(ti)制(zhi)改革(ge)(ge)，國企國資改革(ge)(ge)也(ye)進入(ru)了深入(ru)推進階段，為進一步鞏固農網改革(ge)(ge)成果(guo)，提升服務“三農”水平，提出如(ru)下建議：
一是進一步(bu)健全電力普(pu)(pu)遍(bian)(bian)服務(wu)(wu)補(bu)(bu)償(chang)(chang)機制(zhi)。我國(guo)大(da)多農(nong)村地(di)區(qu)特別是西(xi)部、東北一些地(di)區(qu)，地(di)廣(guang)人稀，經濟社會(hui)發展相對(dui)滯后，農(nong)村供電電量規模(mo)小，供電業(ye)務(wu)(wu)點多面(mian)(mian)廣(guang)線長，單位(wei)輸配(pei)電成(cheng)本(ben)高，供電收(shou)(shou)入和(he)成(cheng)本(ben)不匹(pi)配(pei)，具有典(dian)型的(de)普(pu)(pu)遍(bian)(bian)服務(wu)(wu)屬性(xing)。一直以來中央電網(wang)(wang)企(qi)業(ye)通(tong)過工業(ye)和(he)城市(shi)用(yong)戶(hu)補(bu)(bu)貼(tie)(tie)農(nong)村用(yong)戶(hu)的(de)交叉(cha)補(bu)(bu)貼(tie)(tie)方(fang)式支持農(nong)村電網(wang)(wang)發展。如2015年，南方(fang)電網(wang)(wang)公(gong)司260家獨立(li)核算的(de)農(nong)電企(qi)業(ye)有65家虧損，占25%，如果剔除“電價(jia)交叉(cha)補(bu)(bu)貼(tie)(tie)”等扶持因素，虧損面(mian)(mian)將擴大(da)到92%。建議在新一輪電力體制(zhi)改革中，一方(fang)面(mian)(mian)進一步(bu)健全普(pu)(pu)遍(bian)(bian)服務(wu)(wu)補(bu)(bu)償(chang)(chang)機制(zhi)，切實保障各(ge)類(lei)交叉(cha)補(bu)(bu)貼(tie)(tie)資金來源，并探索在國(guo)家層(ceng)面(mian)(mian)建立(li)普(pu)(pu)遍(bian)(bian)服務(wu)(wu)基金，專(zhuan)項用(yong)于“老少邊(bian)窮”地(di)區(qu)電網(wang)(wang)企(qi)業(ye)的(de)電力普(pu)(pu)遍(bian)(bian)服務(wu)(wu)成(cheng)本(ben)補(bu)(bu)償(chang)(chang)。另(ling)一方(fang)面(mian)(mian)在政(zheng)府價(jia)格部門(men)按照“準(zhun)許成(cheng)本(ben)加合理(li)收(shou)(shou)益(yi)(yi)”機制(zhi)核定輸配(pei)電價(jia)時(shi)，針對(dui)農(nong)村電網(wang)(wang)運(yun)營發展困(kun)難的(de)特殊情況(kuang)，適當提(ti)高農(nong)網(wang)(wang)資產的(de)定價(jia)準(zhun)許成(cheng)本(ben)和(he)收(shou)(shou)益(yi)(yi)水平，支持和(he)保障農(nong)網(wang)(wang)的(de)正常運(yun)營和(he)發展需(xu)要(yao)。
二是進(jin)一步理(li)(li)順農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)力(li)管(guan)(guan)理(li)(li)體制。目前，少數(shu)地方仍由(you)“自(zi)供(gong)(gong)自(zi)管(guan)(guan)”農(nong)(nong)(nong)電(dian)(dian)(dian)企(qi)(qi)(qi)業負責供(gong)(gong)電(dian)(dian)(dian)，造成農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)的實際(ji)分割，影響了(le)電(dian)(dian)(dian)網(wang)(wang)的整(zheng)體統一規劃(hua)和(he)建設(she)(she)；還有(you)些地方新成立了(le)“自(zi)供(gong)(gong)自(zi)管(guan)(guan)”企(qi)(qi)(qi)業，專門(men)負責縣域內的工業園區、工業企(qi)(qi)(qi)業等存量用(yong)電(dian)(dian)(dian)大戶(hu)，無序建設(she)(she)高等級輸電(dian)(dian)(dian)網(wang)(wang)絡。這樣容易造成重(zhong)復建設(she)(she)、投(tou)資浪費，也會形成“用(yong)電(dian)(dian)(dian)大戶(hu)人人搶，普通(tong)用(yong)戶(hu)無人管(guan)(guan)”的局面。建議(yi)在新一輪電(dian)(dian)(dian)力(li)體制改革中，考(kao)慮電(dian)(dian)(dian)網(wang)(wang)具有(you)自(zi)然壟斷屬性、尊重(zhong)農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)網(wang)(wang)發展的客觀規律，從更(geng)有(you)利于(yu)做好農(nong)(nong)(nong)村(cun)供(gong)(gong)電(dian)(dian)(dian)服務(wu)、更(geng)有(you)利于(yu)促進(jin)農(nong)(nong)(nong)電(dian)(dian)(dian)企(qi)(qi)(qi)業持(chi)續健(jian)康發展的角度(du)出(chu)發，支(zhi)持(chi)和(he)推動(dong)中央電(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)(qi)業充分發揮規模(mo)優勢(shi)和(he)專業優勢(shi)，采取產權劃(hua)轉等多種方式，進(jin)一步理(li)(li)順農(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)力(li)管(guan)(guan)理(li)(li)體制，提供(gong)(gong)大電(dian)(dian)(dian)網(wang)(wang)延伸服務(wu)，實現(xian)電(dian)(dian)(dian)網(wang)(wang)統一規劃(hua)、統一建設(she)(she)、統一運營、統一管(guan)(guan)理(li)(li)，保障好農(nong)(nong)(nong)村(cun)地區供(gong)(gong)電(dian)(dian)(dian)。
三(san)是推動建(jian)立支持縣(xian)域(yu)經濟發(fa)(fa)展(zhan)的財(cai)(cai)政稅(shui)收機制。為支持農村電網發(fa)(fa)展(zhan)，履行(xing)電網企(qi)業(ye)提供(gong)普遍服務(wu)的職責，中(zhong)央電網企(qi)業(ye)認真落實國務(wu)院(yuan)及國資委(wei)“瘦(shou)身健體”工作要(yao)求(qiu)，穩步推進縣(xian)級(ji)供(gong)電企(qi)業(ye)“子改(gai)分”工作。縣(xian)級(ji)供(gong)電企(qi)業(ye)“子改(gai)分”后，原本屬于縣(xian)級(ji)地方財(cai)(cai)政收入來源(yuan)的縣(xian)級(ji)供(gong)電企(qi)業(ye)所得稅(shui)將調整至(zhi)各(ge)省級(ji)電網公司(si)本部所在地繳(jiao)納(na)，有(you)關縣(xian)級(ji)區域(yu)現有(you)利益可能(neng)受到較(jiao)大影響。為支持縣(xian)域(yu)經濟發(fa)(fa)展(zhan)，建(jian)議采取財(cai)(cai)政轉移支付(fu)等方式，將省級(ji)電網公司(si)所繳(jiao)稅(shui)額在省、縣(xian)兩級(ji)合理(li)分配。