文章來(lai)源：產權局 發布時間：2018-03-29
長期以來，我國(guo)縣(xian)及縣(xian)以下(xia)的(de)廣大農(nong)村(cun)地(di)區(qu)形成了(le)三類(lei)主體從事供(gong)電(dian)(dian)(dian)的(de)局面，即國(guo)家電(dian)(dian)(dian)網公司和(he)(he)南方電(dian)(dian)(dian)網公司（以下(xia)統稱中央(yang)電(dian)(dian)(dian)網企(qi)(qi)(qi)業(ye)(ye)）全資的(de)“直(zhi)供(gong)直(zhi)管(guan)”供(gong)電(dian)(dian)(dian)企(qi)(qi)(qi)業(ye)(ye)、由中央(yang)電(dian)(dian)(dian)網企(qi)(qi)(qi)業(ye)(ye)“代(dai)管(guan)”的(de)縣(xian)國(guo)有供(gong)電(dian)(dian)(dian)企(qi)(qi)(qi)業(ye)(ye)、與(yu)中央(yang)電(dian)(dian)(dian)網企(qi)(qi)(qi)業(ye)(ye)既無產權關系也無管(guan)理關系的(de)其(qi)他“自(zi)供(gong)自(zi)管(guan)”企(qi)(qi)(qi)業(ye)(ye)。這一農(nong)電(dian)(dian)(dian)體制導致(zhi)城鄉電(dian)(dian)(dian)網之(zhi)(zhi)間難以真正(zheng)實現(xian)統籌規劃和(he)(he)建設，加之(zhi)(zhi)部分“代(dai)管(guan)”和(he)(he)“自(zi)供(gong)自(zi)管(guan)”企(qi)(qi)(qi)業(ye)(ye)自(zi)我積累(lei)能力差，農(nong)村(cun)電(dian)(dian)(dian)網投資欠賬(zhang)多(duo)、管(guan)理基礎薄弱(ruo)，農(nong)村(cun)電(dian)(dian)(dian)網發展不(bu)平衡(heng)的(de)矛(mao)盾(dun)日(ri)益突出，成為制約農(nong)村(cun)經濟(ji)社會(hui)發展的(de)短板之(zhi)(zhi)一。
為貫徹落實(shi)國家農(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)力(li)體制改革部署(shu)，補齊農(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)的短板，近年(nian)來，國務院國資委指導中(zhong)央電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)積極爭取(qu)地(di)方政府的支持，克服(fu)地(di)方農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企業(ye)普(pu)遍經營效(xiao)益差、歷史負擔(dan)沉重、人員安置壓力(li)大(da)(da)等(deng)困難(nan)，通(tong)過直接劃轉(zhuan)、先(xian)代管(guan)再劃轉(zhuan)、先(xian)合資控股再劃轉(zhuan)等(deng)路(lu)徑，累計上收29個(ge)(ge)省（自(zi)治區(qu)(qu)）農(nong)(nong)(nong)電(dian)(dian)(dian)(dian)企業(ye)1056戶，涉(she)及資產(chan)總額3276億(yi)元、凈資產(chan)977億(yi)元。目前，全國2163個(ge)(ge)涉(she)及農(nong)(nong)(nong)網(wang)(wang)的行政縣(xian)區(qu)(qu)中(zhong)，1979個(ge)(ge)已(yi)實(shi)現(xian)“直供直管(guan)”。絕大(da)(da)部分(fen)縣(xian)域農(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)都納入了(le)全國電(dian)(dian)(dian)(dian)網(wang)(wang)“大(da)(da)盤子”，從(cong)根本上破除了(le)制約農(nong)(nong)(nong)村電(dian)(dian)(dian)(dian)網(wang)(wang)發展的體制障礙(ai)，“大(da)(da)、小電(dian)(dian)(dian)(dian)網(wang)(wang)”真正實(shi)現(xian)了(le)統(tong)一(yi)規劃、統(tong)一(yi)建設、統(tong)一(yi)運營、統(tong)一(yi)管(guan)理。
一是(shi)推進(jin)無電(dian)地區電(dian)力(li)建設，解決(jue)(jue)了無電(dian)人(ren)口的(de)用電(dian)問(wen)題(ti)。中央電(dian)網(wang)企業克服惡劣的(de)地質和交通條件(jian)，加(jia)大資金投入，探索“發供一體”的(de)特(te)殊供電(dian)模式，累計完成無電(dian)地區電(dian)力(li)建設投資438億元，解決(jue)(jue)了248萬戶(hu)無電(dian)家庭、982萬無電(dian)人(ren)口的(de)用電(dian)問(wen)題(ti)。
二是提(ti)(ti)高供電(dian)(dian)(dian)能(neng)力(li)(li)和質量，為脫貧(pin)攻堅(jian)奠(dian)定堅(jian)實基礎。“十二五”期間，中央電(dian)(dian)(dian)網(wang)(wang)企(qi)業累(lei)計完成農網(wang)(wang)投資6048億元，農村(cun)電(dian)(dian)(dian)網(wang)(wang)戶(hu)均(jun)配電(dian)(dian)(dian)容量增加70%，解(jie)決(jue)了中西部地區(qu)(qu)45個縣(xian)(xian)域(yu)電(dian)(dian)(dian)網(wang)(wang)“孤網(wang)(wang)運行”問(wen)題(ti)、148個縣(xian)(xian)域(yu)電(dian)(dian)(dian)網(wang)(wang)與主網(wang)(wang)聯系薄(bo)弱(ruo)問(wen)題(ti)，農村(cun)供電(dian)(dian)(dian)可靠率達(da)到99.7%以上，用(yong)戶(hu)年(nian)均(jun)停電(dian)(dian)(dian)時間由2010年(nian)的30小時以上縮短(duan)至15小時左右，農村(cun)電(dian)(dian)(dian)網(wang)(wang)供電(dian)(dian)(dian)能(neng)力(li)(li)和質量顯著(zhu)提(ti)(ti)升(sheng)。對供電(dian)(dian)(dian)區(qu)(qu)域(yu)內567個國家級貧(pin)困縣(xian)(xian)農網(wang)(wang)投資1622億元，貧(pin)困農村(cun)地區(qu)(qu)電(dian)(dian)(dian)力(li)(li)“卡脖(bo)子(zi)”問(wen)題(ti)得到有效治(zhi)理，過(guo)去困擾農村(cun)地區(qu)(qu)發(fa)展的頻繁停電(dian)(dian)(dian)、電(dian)(dian)(dian)壓不穩現象得到根本扭轉，為脫貧(pin)攻堅(jian)提(ti)(ti)供了堅(jian)實電(dian)(dian)(dian)力(li)(li)保障。
三(san)是統(tong)籌協調(diao)全網(wang)資源，農村(cun)電網(wang)的(de)(de)(de)(de)抗風險(xian)能力大幅提(ti)升。中央電網(wang)企(qi)(qi)業發揮(hui)全網(wang)一盤棋的(de)(de)(de)(de)優勢，在(zai)強化農村(cun)電網(wang)的(de)(de)(de)(de)技術防災(zai)(zai)能力建(jian)設的(de)(de)(de)(de)同(tong)時，依托自身較為(wei)完善的(de)(de)(de)(de)管控體系和(he)(he)(he)應急機(ji)制，使農村(cun)電網(wang)的(de)(de)(de)(de)抗災(zai)(zai)、救災(zai)(zai)和(he)(he)(he)災(zai)(zai)后恢(hui)復能力顯(xian)著提(ti)高。如臺風“莫蘭蒂”、“鯰魚(yu)”短時間內(nei)連(lian)續登陸福建(jian)，造成疊加災(zai)(zai)害(hai)影響，在(zai)道(dao)路(lu)沖毀(hui)、通訊中斷(duan)等不利條件下，中央電網(wang)企(qi)(qi)業協調(diao)電力搶(qiang)修(xiu)隊伍和(he)(he)(he)資源，僅用(yong)了(le)常規(gui)搶(qiang)修(xiu)時間的(de)(de)(de)(de)三(san)分之一就全面恢(hui)復了(le)數百萬(wan)受災(zai)(zai)用(yong)戶的(de)(de)(de)(de)供(gong)電，為(wei)當(dang)地快速開展救災(zai)(zai)和(he)(he)(he)災(zai)(zai)后重建(jian)提(ti)供(gong)了(le)有力保障(zhang)。
四(si)是加強黨的(de)(de)建設(she)，暢通基層(ceng)(ceng)電(dian)(dian)(dian)(dian)網企(qi)(qi)業(ye)服務(wu)群眾(zhong)的(de)(de)“最后(hou)一公里”。農(nong)村(cun)電(dian)(dian)(dian)(dian)網是整(zheng)個(ge)電(dian)(dian)(dian)(dian)網的(de)(de)“神經末梢”，針對部(bu)分農(nong)電(dian)(dian)(dian)(dian)企(qi)(qi)業(ye)黨的(de)(de)建設(she)存(cun)在(zai)弱化(hua)、淡化(hua)、虛化(hua)、邊緣化(hua)的(de)(de)問(wen)題，中(zhong)央電(dian)(dian)(dian)(dian)網企(qi)(qi)業(ye)按(an)照(zhao)“全面覆(fu)蓋、有效覆(fu)蓋”的(de)(de)要求(qiu)(qiu)，與產(chan)權劃轉同步健全黨的(de)(de)組織，將位于(yu)供(gong)電(dian)(dian)(dian)(dian)一線(xian)的(de)(de)每個(ge)班組、農(nong)村(cun)基層(ceng)(ceng)的(de)(de)每個(ge)服務(wu)點都(dou)建成聯系群眾(zhong)、服務(wu)群眾(zhong)的(de)(de)“前言哨”和(he)“連心橋”。如國家(jia)電(dian)(dian)(dian)(dian)網四(si)川資(zi)陽公司(si)基層(ceng)(ceng)服務(wu)點發(fa)現(xian)春節期間(jian)農(nong)村(cun)外(wai)出務(wu)工人員集中(zhong)返(fan)鄉，用電(dian)(dian)(dian)(dian)負(fu)荷(he)急(ji)劇增加，容(rong)易出現(xian)電(dian)(dian)(dian)(dian)壓(ya)不穩、斷電(dian)(dian)(dian)(dian)等情況，他(ta)們(men)通過提前掌握外(wai)出務(wu)工人員返(fan)鄉時間(jian)，安排移動發(fa)電(dian)(dian)(dian)(dian)機和(he)變壓(ya)器，確保群眾(zhong)春節期間(jian)用電(dian)(dian)(dian)(dian)需求(qiu)(qiu)。
目(mu)前我國正在推(tui)進新一輪電力體制改革，國企國資(zi)改革也進入(ru)了深入(ru)推(tui)進階(jie)段，為進一步鞏固農(nong)網(wang)改革成果，提升(sheng)服務“三農(nong)”水平，提出(chu)如下建議：
一(yi)(yi)(yi)是進(jin)一(yi)(yi)(yi)步健全(quan)電(dian)(dian)(dian)(dian)(dian)力(li)普遍(bian)服(fu)務(wu)(wu)補(bu)(bu)(bu)償(chang)(chang)(chang)機制(zhi)。我國(guo)大多農(nong)(nong)(nong)(nong)村(cun)地(di)區(qu)特別是西部、東北一(yi)(yi)(yi)些地(di)區(qu)，地(di)廣人(ren)稀，經(jing)濟社會發(fa)(fa)展(zhan)(zhan)相(xiang)對滯后，農(nong)(nong)(nong)(nong)村(cun)供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)電(dian)(dian)(dian)(dian)(dian)量規模小，供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)(wu)點多面(mian)廣線長，單位輸(shu)配電(dian)(dian)(dian)(dian)(dian)成(cheng)(cheng)(cheng)本(ben)(ben)高(gao)，供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)收(shou)入和成(cheng)(cheng)(cheng)本(ben)(ben)不匹(pi)配，具有典型的(de)普遍(bian)服(fu)務(wu)(wu)屬性。一(yi)(yi)(yi)直以來(lai)中央電(dian)(dian)(dian)(dian)(dian)網企(qi)業(ye)(ye)(ye)通過(guo)工業(ye)(ye)(ye)和城(cheng)市用戶(hu)補(bu)(bu)(bu)貼(tie)(tie)農(nong)(nong)(nong)(nong)村(cun)用戶(hu)的(de)交叉(cha)補(bu)(bu)(bu)貼(tie)(tie)方(fang)式支持(chi)農(nong)(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網發(fa)(fa)展(zhan)(zhan)。如2015年，南(nan)方(fang)電(dian)(dian)(dian)(dian)(dian)網公司(si)260家(jia)(jia)獨立核算的(de)農(nong)(nong)(nong)(nong)電(dian)(dian)(dian)(dian)(dian)企(qi)業(ye)(ye)(ye)有65家(jia)(jia)虧損(sun)，占(zhan)25%，如果剔(ti)除“電(dian)(dian)(dian)(dian)(dian)價(jia)交叉(cha)補(bu)(bu)(bu)貼(tie)(tie)”等扶持(chi)因素，虧損(sun)面(mian)將擴大到92%。建議在新一(yi)(yi)(yi)輪(lun)電(dian)(dian)(dian)(dian)(dian)力(li)體(ti)制(zhi)改革(ge)中，一(yi)(yi)(yi)方(fang)面(mian)進(jin)一(yi)(yi)(yi)步健全(quan)普遍(bian)服(fu)務(wu)(wu)補(bu)(bu)(bu)償(chang)(chang)(chang)機制(zhi)，切實保(bao)障各類交叉(cha)補(bu)(bu)(bu)貼(tie)(tie)資金來(lai)源，并探索在國(guo)家(jia)(jia)層面(mian)建立普遍(bian)服(fu)務(wu)(wu)基金，專項(xiang)用于(yu)“老少(shao)邊窮”地(di)區(qu)電(dian)(dian)(dian)(dian)(dian)網企(qi)業(ye)(ye)(ye)的(de)電(dian)(dian)(dian)(dian)(dian)力(li)普遍(bian)服(fu)務(wu)(wu)成(cheng)(cheng)(cheng)本(ben)(ben)補(bu)(bu)(bu)償(chang)(chang)(chang)。另一(yi)(yi)(yi)方(fang)面(mian)在政(zheng)府價(jia)格部門按照(zhao)“準許成(cheng)(cheng)(cheng)本(ben)(ben)加合理收(shou)益”機制(zhi)核定(ding)(ding)輸(shu)配電(dian)(dian)(dian)(dian)(dian)價(jia)時，針對農(nong)(nong)(nong)(nong)村(cun)電(dian)(dian)(dian)(dian)(dian)網運營發(fa)(fa)展(zhan)(zhan)困難的(de)特殊(shu)情況，適當提(ti)高(gao)農(nong)(nong)(nong)(nong)網資產(chan)的(de)定(ding)(ding)價(jia)準許成(cheng)(cheng)(cheng)本(ben)(ben)和收(shou)益水平(ping)，支持(chi)和保(bao)障農(nong)(nong)(nong)(nong)網的(de)正常運營和發(fa)(fa)展(zhan)(zhan)需(xu)要。
二是進一(yi)步理(li)(li)順農(nong)村電(dian)(dian)力(li)管(guan)(guan)理(li)(li)體(ti)制。目前，少數(shu)地方(fang)仍(reng)由“自供(gong)(gong)自管(guan)(guan)”農(nong)電(dian)(dian)企(qi)業負(fu)責供(gong)(gong)電(dian)(dian)，造成(cheng)農(nong)村電(dian)(dian)網(wang)(wang)(wang)的(de)(de)實(shi)際分割，影響(xiang)了電(dian)(dian)網(wang)(wang)(wang)的(de)(de)整(zheng)體(ti)統(tong)(tong)一(yi)規劃(hua)和建(jian)(jian)設；還有些地方(fang)新成(cheng)立了“自供(gong)(gong)自管(guan)(guan)”企(qi)業，專門負(fu)責縣域內的(de)(de)工業園(yuan)區、工業企(qi)業等(deng)存量用(yong)電(dian)(dian)大(da)戶，無序建(jian)(jian)設高等(deng)級(ji)輸電(dian)(dian)網(wang)(wang)(wang)絡。這樣容易造成(cheng)重復建(jian)(jian)設、投資浪費，也會形成(cheng)“用(yong)電(dian)(dian)大(da)戶人人搶，普通(tong)用(yong)戶無人管(guan)(guan)”的(de)(de)局面。建(jian)(jian)議(yi)在新一(yi)輪電(dian)(dian)力(li)體(ti)制改革(ge)中，考慮電(dian)(dian)網(wang)(wang)(wang)具有自然壟(long)斷屬性(xing)、尊重農(nong)村電(dian)(dian)網(wang)(wang)(wang)發(fa)(fa)展的(de)(de)客觀規律，從更有利于(yu)做好(hao)農(nong)村供(gong)(gong)電(dian)(dian)服務、更有利于(yu)促(cu)進農(nong)電(dian)(dian)企(qi)業持(chi)續健康發(fa)(fa)展的(de)(de)角度出(chu)發(fa)(fa)，支持(chi)和推動中央電(dian)(dian)網(wang)(wang)(wang)企(qi)業充分發(fa)(fa)揮規模(mo)優(you)勢(shi)和專業優(you)勢(shi)，采取產權劃(hua)轉等(deng)多種方(fang)式，進一(yi)步理(li)(li)順農(nong)村電(dian)(dian)力(li)管(guan)(guan)理(li)(li)體(ti)制，提供(gong)(gong)大(da)電(dian)(dian)網(wang)(wang)(wang)延伸服務，實(shi)現電(dian)(dian)網(wang)(wang)(wang)統(tong)(tong)一(yi)規劃(hua)、統(tong)(tong)一(yi)建(jian)(jian)設、統(tong)(tong)一(yi)運營(ying)、統(tong)(tong)一(yi)管(guan)(guan)理(li)(li)，保障好(hao)農(nong)村地區供(gong)(gong)電(dian)(dian)。
三是推動建立支持縣域經濟發展(zhan)的(de)財(cai)(cai)政稅(shui)(shui)收(shou)機制(zhi)。為(wei)支持農村電(dian)網(wang)發展(zhan)，履行電(dian)網(wang)企業提供普遍服務的(de)職責(ze)，中央電(dian)網(wang)企業認真落實國務院及國資委“瘦身健體”工(gong)作(zuo)(zuo)要求(qiu)，穩步推進縣級(ji)(ji)供電(dian)企業“子改分(fen)”工(gong)作(zuo)(zuo)。縣級(ji)(ji)供電(dian)企業“子改分(fen)”后，原本屬于縣級(ji)(ji)地(di)方財(cai)(cai)政收(shou)入(ru)來源(yuan)的(de)縣級(ji)(ji)供電(dian)企業所得(de)稅(shui)(shui)將調整至各省級(ji)(ji)電(dian)網(wang)公(gong)司本部所在地(di)繳(jiao)(jiao)納，有關縣級(ji)(ji)區域現(xian)有利益可(ke)能(neng)受到較大影響。為(wei)支持縣域經濟發展(zhan)，建議采取財(cai)(cai)政轉移支付等(deng)方式，將省級(ji)(ji)電(dian)網(wang)公(gong)司所繳(jiao)(jiao)稅(shui)(shui)額在省、縣兩級(ji)(ji)合理分(fen)配。