文章來源：產權局 發布時間：2018-03-29
長(chang)期以(yi)(yi)來(lai)，我國(guo)縣(xian)及縣(xian)以(yi)(yi)下(xia)的廣(guang)大農村(cun)(cun)(cun)地(di)區(qu)形(xing)成(cheng)了三類(lei)主體從事供電(dian)的局面，即國(guo)家電(dian)網(wang)(wang)(wang)(wang)(wang)公(gong)司(si)和南方(fang)電(dian)網(wang)(wang)(wang)(wang)(wang)公(gong)司(si)（以(yi)(yi)下(xia)統稱中央電(dian)網(wang)(wang)(wang)(wang)(wang)企(qi)業）全資的“直供直管”供電(dian)企(qi)業、由中央電(dian)網(wang)(wang)(wang)(wang)(wang)企(qi)業“代管”的縣(xian)國(guo)有供電(dian)企(qi)業、與中央電(dian)網(wang)(wang)(wang)(wang)(wang)企(qi)業既無產權(quan)關系也無管理關系的其他“自(zi)供自(zi)管”企(qi)業。這一農電(dian)體制導致城鄉電(dian)網(wang)(wang)(wang)(wang)(wang)之間難以(yi)(yi)真正(zheng)實現統籌規(gui)劃(hua)和建設(she)，加之部分(fen)“代管”和“自(zi)供自(zi)管”企(qi)業自(zi)我積累能(neng)力差，農村(cun)(cun)(cun)電(dian)網(wang)(wang)(wang)(wang)(wang)投(tou)資欠賬多(duo)、管理基礎薄弱，農村(cun)(cun)(cun)電(dian)網(wang)(wang)(wang)(wang)(wang)發展不平(ping)衡(heng)的矛盾日益突出，成(cheng)為制約農村(cun)(cun)(cun)經濟社(she)會發展的短(duan)板之一。
為貫徹(che)落實(shi)(shi)國(guo)家農村(cun)電(dian)力(li)體制改革部署，補齊農村(cun)電(dian)網(wang)的短板，近年來，國(guo)務(wu)院(yuan)國(guo)資(zi)(zi)委指導中央電(dian)網(wang)企業(ye)積極(ji)爭取(qu)地(di)方政府的支持，克服地(di)方農電(dian)企業(ye)普遍經營(ying)效益(yi)差、歷史負擔(dan)沉重、人員安置壓力(li)大(da)(da)等困難，通過直接(jie)劃(hua)(hua)轉、先(xian)代管(guan)再(zai)劃(hua)(hua)轉、先(xian)合資(zi)(zi)控股(gu)再(zai)劃(hua)(hua)轉等路徑，累計上收29個(ge)省（自治(zhi)區(qu)）農電(dian)企業(ye)1056戶(hu)，涉及(ji)資(zi)(zi)產總額3276億元、凈資(zi)(zi)產977億元。目前，全國(guo)2163個(ge)涉及(ji)農網(wang)的行政縣區(qu)中，1979個(ge)已實(shi)(shi)現(xian)“直供直管(guan)”。絕大(da)(da)部分縣域農村(cun)電(dian)網(wang)都納入了全國(guo)電(dian)網(wang)“大(da)(da)盤子”，從根本上破除了制約農村(cun)電(dian)網(wang)發展的體制障(zhang)礙，“大(da)(da)、小電(dian)網(wang)”真(zhen)正實(shi)(shi)現(xian)了統一(yi)(yi)規劃(hua)(hua)、統一(yi)(yi)建設、統一(yi)(yi)運(yun)營(ying)、統一(yi)(yi)管(guan)理。
一(yi)是(shi)推進無(wu)電(dian)(dian)(dian)地(di)區電(dian)(dian)(dian)力建設，解決(jue)了(le)無(wu)電(dian)(dian)(dian)人(ren)口的(de)用電(dian)(dian)(dian)問題。中(zhong)央電(dian)(dian)(dian)網企(qi)業克(ke)服惡劣的(de)地(di)質和交通條件，加大資金投(tou)入(ru)，探索“發供一(yi)體”的(de)特(te)殊供電(dian)(dian)(dian)模式，累計完成無(wu)電(dian)(dian)(dian)地(di)區電(dian)(dian)(dian)力建設投(tou)資438億元，解決(jue)了(le)248萬戶(hu)無(wu)電(dian)(dian)(dian)家庭、982萬無(wu)電(dian)(dian)(dian)人(ren)口的(de)用電(dian)(dian)(dian)問題。
二是提(ti)高供電能力和質(zhi)量，為(wei)脫貧(pin)攻(gong)堅奠定(ding)堅實(shi)基礎。“十二五”期間，中(zhong)央(yang)電網(wang)(wang)企(qi)業累(lei)計完成農(nong)網(wang)(wang)投資6048億元，農(nong)村(cun)電網(wang)(wang)戶均(jun)配電容量增(zeng)加70%，解決了中(zhong)西部(bu)地(di)區(qu)45個縣(xian)域(yu)電網(wang)(wang)“孤網(wang)(wang)運行”問題、148個縣(xian)域(yu)電網(wang)(wang)與(yu)主(zhu)網(wang)(wang)聯(lian)系薄(bo)弱問題，農(nong)村(cun)供電可靠率達到99.7%以上，用戶年(nian)均(jun)停電時間由2010年(nian)的30小時以上縮短至(zhi)15小時左右，農(nong)村(cun)電網(wang)(wang)供電能力和質(zhi)量顯著提(ti)升。對(dui)供電區(qu)域(yu)內567個國(guo)家級貧(pin)困縣(xian)農(nong)網(wang)(wang)投資1622億元，貧(pin)困農(nong)村(cun)地(di)區(qu)電力“卡脖子”問題得(de)到有效治理，過去(qu)困擾(rao)農(nong)村(cun)地(di)區(qu)發展的頻繁停電、電壓不(bu)穩現(xian)象(xiang)得(de)到根本(ben)扭轉，為(wei)脫貧(pin)攻(gong)堅提(ti)供了堅實(shi)電力保障。
三是統籌協調全(quan)網(wang)資源(yuan)，農村(cun)(cun)電網(wang)的(de)(de)(de)抗風險(xian)能(neng)(neng)力(li)大幅提(ti)升。中(zhong)央電網(wang)企業發(fa)揮全(quan)網(wang)一盤棋的(de)(de)(de)優勢，在(zai)強(qiang)化農村(cun)(cun)電網(wang)的(de)(de)(de)技術防災(zai)能(neng)(neng)力(li)建(jian)設的(de)(de)(de)同(tong)時，依托(tuo)自身較為完善的(de)(de)(de)管控(kong)體系和應急機制，使農村(cun)(cun)電網(wang)的(de)(de)(de)抗災(zai)、救災(zai)和災(zai)后(hou)恢復能(neng)(neng)力(li)顯著提(ti)高。如臺風“莫蘭蒂”、“鯰(nian)魚”短時間內連續登陸福建(jian)，造(zao)成疊加災(zai)害影響，在(zai)道路沖毀、通訊(xun)中(zhong)斷(duan)等不利(li)條(tiao)件下，中(zhong)央電網(wang)企業協調電力(li)搶(qiang)修(xiu)隊伍和資源(yuan)，僅用了(le)(le)常規(gui)搶(qiang)修(xiu)時間的(de)(de)(de)三分之一就全(quan)面恢復了(le)(le)數百(bai)萬受災(zai)用戶的(de)(de)(de)供電，為當地快速(su)開展救災(zai)和災(zai)后(hou)重建(jian)提(ti)供了(le)(le)有(you)力(li)保障。
四是(shi)加強黨的(de)(de)建(jian)設，暢通(tong)基層(ceng)電(dian)(dian)(dian)(dian)(dian)網企業服(fu)務(wu)(wu)(wu)群(qun)眾(zhong)(zhong)的(de)(de)“最(zui)后一(yi)公里(li)”。農(nong)(nong)村(cun)(cun)電(dian)(dian)(dian)(dian)(dian)網是(shi)整個(ge)電(dian)(dian)(dian)(dian)(dian)網的(de)(de)“神經(jing)末梢(shao)”，針(zhen)對部分農(nong)(nong)電(dian)(dian)(dian)(dian)(dian)企業黨的(de)(de)建(jian)設存(cun)在弱(ruo)化、淡化、虛化、邊緣化的(de)(de)問題，中央電(dian)(dian)(dian)(dian)(dian)網企業按照“全面覆(fu)蓋、有效覆(fu)蓋”的(de)(de)要求(qiu)，與產(chan)權劃轉同步健全黨的(de)(de)組織，將位(wei)于供(gong)電(dian)(dian)(dian)(dian)(dian)一(yi)線的(de)(de)每(mei)個(ge)班組、農(nong)(nong)村(cun)(cun)基層(ceng)的(de)(de)每(mei)個(ge)服(fu)務(wu)(wu)(wu)點都(dou)建(jian)成聯系群(qun)眾(zhong)(zhong)、服(fu)務(wu)(wu)(wu)群(qun)眾(zhong)(zhong)的(de)(de)“前(qian)言哨”和(he)“連心橋”。如國家(jia)電(dian)(dian)(dian)(dian)(dian)網四川資陽(yang)公司(si)基層(ceng)服(fu)務(wu)(wu)(wu)點發現春節期間(jian)(jian)農(nong)(nong)村(cun)(cun)外(wai)出務(wu)(wu)(wu)工人(ren)員集中返(fan)(fan)鄉，用(yong)電(dian)(dian)(dian)(dian)(dian)負(fu)荷急劇增(zeng)加，容易出現電(dian)(dian)(dian)(dian)(dian)壓不穩、斷電(dian)(dian)(dian)(dian)(dian)等情(qing)況，他們通(tong)過(guo)提前(qian)掌(zhang)握外(wai)出務(wu)(wu)(wu)工人(ren)員返(fan)(fan)鄉時(shi)間(jian)(jian)，安排(pai)移動發電(dian)(dian)(dian)(dian)(dian)機和(he)變(bian)壓器，確(que)保群(qun)眾(zhong)(zhong)春節期間(jian)(jian)用(yong)電(dian)(dian)(dian)(dian)(dian)需求(qiu)。
目前我國(guo)正在(zai)推(tui)進(jin)新一輪電(dian)力體制(zhi)改(gai)(gai)革(ge)，國(guo)企國(guo)資改(gai)(gai)革(ge)也(ye)進(jin)入了深(shen)入推(tui)進(jin)階段，為(wei)進(jin)一步鞏(gong)固(gu)農(nong)(nong)網(wang)改(gai)(gai)革(ge)成果(guo)，提升服務“三農(nong)(nong)”水平，提出如下建議：
一(yi)是進(jin)(jin)一(yi)步(bu)健全(quan)電(dian)(dian)力普遍(bian)服(fu)(fu)(fu)(fu)務補(bu)償機(ji)制。我國大(da)多農(nong)(nong)村(cun)地(di)區(qu)特(te)別(bie)是西部(bu)、東(dong)北(bei)一(yi)些(xie)地(di)區(qu)，地(di)廣人稀，經濟社會發(fa)(fa)展相對滯(zhi)后，農(nong)(nong)村(cun)供(gong)電(dian)(dian)電(dian)(dian)量規模小，供(gong)電(dian)(dian)業務點(dian)多面廣線長，單(dan)位輸(shu)配(pei)電(dian)(dian)成(cheng)(cheng)本(ben)高，供(gong)電(dian)(dian)收入(ru)和成(cheng)(cheng)本(ben)不匹配(pei)，具有典(dian)型的(de)普遍(bian)服(fu)(fu)(fu)(fu)務屬(shu)性。一(yi)直以來(lai)中央(yang)電(dian)(dian)網(wang)企(qi)業通過工業和城市用戶(hu)補(bu)貼農(nong)(nong)村(cun)用戶(hu)的(de)交叉補(bu)貼方式支持(chi)農(nong)(nong)村(cun)電(dian)(dian)網(wang)發(fa)(fa)展。如2015年，南方電(dian)(dian)網(wang)公司260家獨立核算(suan)的(de)農(nong)(nong)電(dian)(dian)企(qi)業有65家虧損，占25%，如果剔除“電(dian)(dian)價(jia)交叉補(bu)貼”等扶持(chi)因素，虧損面將(jiang)擴大(da)到92%。建議在新(xin)一(yi)輪電(dian)(dian)力體制改革中，一(yi)方面進(jin)(jin)一(yi)步(bu)健全(quan)普遍(bian)服(fu)(fu)(fu)(fu)務補(bu)償機(ji)制，切實(shi)保障(zhang)各類交叉補(bu)貼資金來(lai)源，并探索在國家層面建立普遍(bian)服(fu)(fu)(fu)(fu)務基金，專項(xiang)用于“老少邊窮”地(di)區(qu)電(dian)(dian)網(wang)企(qi)業的(de)電(dian)(dian)力普遍(bian)服(fu)(fu)(fu)(fu)務成(cheng)(cheng)本(ben)補(bu)償。另(ling)一(yi)方面在政(zheng)府(fu)價(jia)格部(bu)門按照“準許(xu)成(cheng)(cheng)本(ben)加合理收益(yi)”機(ji)制核定輸(shu)配(pei)電(dian)(dian)價(jia)時，針對農(nong)(nong)村(cun)電(dian)(dian)網(wang)運(yun)營(ying)(ying)發(fa)(fa)展困難(nan)的(de)特(te)殊情況，適(shi)當(dang)提高農(nong)(nong)網(wang)資產的(de)定價(jia)準許(xu)成(cheng)(cheng)本(ben)和收益(yi)水平，支持(chi)和保障(zhang)農(nong)(nong)網(wang)的(de)正常運(yun)營(ying)(ying)和發(fa)(fa)展需要(yao)。
二是進(jin)一(yi)(yi)步理(li)(li)順農(nong)村(cun)(cun)(cun)電(dian)(dian)(dian)(dian)力管(guan)理(li)(li)體制。目前，少數地方仍由(you)“自(zi)供自(zi)管(guan)”農(nong)電(dian)(dian)(dian)(dian)企業(ye)(ye)負(fu)責供電(dian)(dian)(dian)(dian)，造(zao)成農(nong)村(cun)(cun)(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)的實際分(fen)割，影響(xiang)了電(dian)(dian)(dian)(dian)網(wang)(wang)的整(zheng)體統一(yi)(yi)規劃(hua)(hua)和(he)建(jian)設；還有些(xie)地方新(xin)成立(li)了“自(zi)供自(zi)管(guan)”企業(ye)(ye)，專(zhuan)(zhuan)門負(fu)責縣域(yu)內的工(gong)業(ye)(ye)園(yuan)區、工(gong)業(ye)(ye)企業(ye)(ye)等(deng)存量用電(dian)(dian)(dian)(dian)大戶(hu)，無(wu)序建(jian)設高(gao)等(deng)級(ji)輸電(dian)(dian)(dian)(dian)網(wang)(wang)絡。這(zhe)樣容(rong)易造(zao)成重復建(jian)設、投(tou)資浪費(fei)，也會形成“用電(dian)(dian)(dian)(dian)大戶(hu)人(ren)(ren)人(ren)(ren)搶(qiang)，普通(tong)用戶(hu)無(wu)人(ren)(ren)管(guan)”的局面。建(jian)議(yi)在新(xin)一(yi)(yi)輪(lun)電(dian)(dian)(dian)(dian)力體制改革中，考慮電(dian)(dian)(dian)(dian)網(wang)(wang)具(ju)有自(zi)然壟斷屬性、尊重農(nong)村(cun)(cun)(cun)電(dian)(dian)(dian)(dian)網(wang)(wang)發(fa)展的客觀規律，從更有利(li)于做(zuo)好農(nong)村(cun)(cun)(cun)供電(dian)(dian)(dian)(dian)服(fu)務、更有利(li)于促進(jin)農(nong)電(dian)(dian)(dian)(dian)企業(ye)(ye)持(chi)續(xu)健康發(fa)展的角度出發(fa)，支持(chi)和(he)推動中央電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)(ye)充分(fen)發(fa)揮規模優勢和(he)專(zhuan)(zhuan)業(ye)(ye)優勢，采(cai)取產權劃(hua)(hua)轉等(deng)多(duo)種方式，進(jin)一(yi)(yi)步理(li)(li)順農(nong)村(cun)(cun)(cun)電(dian)(dian)(dian)(dian)力管(guan)理(li)(li)體制，提供大電(dian)(dian)(dian)(dian)網(wang)(wang)延伸服(fu)務，實現電(dian)(dian)(dian)(dian)網(wang)(wang)統一(yi)(yi)規劃(hua)(hua)、統一(yi)(yi)建(jian)設、統一(yi)(yi)運(yun)營、統一(yi)(yi)管(guan)理(li)(li)，保(bao)障好農(nong)村(cun)(cun)(cun)地區供電(dian)(dian)(dian)(dian)。
三是推(tui)動建立支持縣(xian)(xian)域經(jing)濟(ji)發(fa)展(zhan)的(de)財政(zheng)稅(shui)收機制(zhi)。為支持農(nong)村電(dian)(dian)(dian)網(wang)發(fa)展(zhan)，履(lv)行電(dian)(dian)(dian)網(wang)企(qi)業(ye)提供普遍服務的(de)職責，中央電(dian)(dian)(dian)網(wang)企(qi)業(ye)認真落實國務院及國資委“瘦身健體”工作要求，穩步推(tui)進(jin)縣(xian)(xian)級(ji)供電(dian)(dian)(dian)企(qi)業(ye)“子改(gai)分(fen)”工作。縣(xian)(xian)級(ji)供電(dian)(dian)(dian)企(qi)業(ye)“子改(gai)分(fen)”后(hou)，原本屬于縣(xian)(xian)級(ji)地方(fang)財政(zheng)收入來源的(de)縣(xian)(xian)級(ji)供電(dian)(dian)(dian)企(qi)業(ye)所(suo)(suo)得(de)稅(shui)將調整(zheng)至各省(sheng)級(ji)電(dian)(dian)(dian)網(wang)公(gong)司本部所(suo)(suo)在地繳(jiao)納，有關縣(xian)(xian)級(ji)區域現(xian)有利(li)益可能受到較大影響。為支持縣(xian)(xian)域經(jing)濟(ji)發(fa)展(zhan)，建議采取財政(zheng)轉移(yi)支付等方(fang)式，將省(sheng)級(ji)電(dian)(dian)(dian)網(wang)公(gong)司所(suo)(suo)繳(jiao)稅(shui)額在省(sheng)、縣(xian)(xian)兩級(ji)合理分(fen)配。