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增(zeng)量(liang)配電(dian)網是新一輪(lun)電(dian)力體制改(gai)革(ge)的(de)產物，有效推(tui)進(jin)(jin)試(shi)(shi)點(dian)項目對(dui)于(yu)各試(shi)(shi)點(dian)業(ye)(ye)主(zhu)及地方政(zheng)府都具有探(tan)索性和挑(tiao)戰性。本(ben)文以增(zeng)量(liang)配電(dian)業(ye)(ye)務(wu)(wu)相(xiang)關政(zheng)策為基(ji)礎，結合前(qian)人的(de)研究成果(guo)，對(dui)增(zeng)量(liang)配電(dian)業(ye)(ye)務(wu)(wu)的(de)內涵進(jin)(jin)行(xing)了再解(jie)釋，并聯系試(shi)(shi)點(dian)電(dian)網規(gui)劃、業(ye)(ye)主(zhu)招標(biao)及建設(she)經(jing)營(ying)等實際情(qing)況，分(fen)析了增(zeng)量(liang)配電(dian)業(ye)(ye)務(wu)(wu)改(gai)革(ge)過程中出現的(de)主(zhu)要矛盾。從地方政(zheng)府、電(dian)網企(qi)業(ye)(ye)、投資業(ye)(ye)主(zhu)3個角(jiao)度探(tan)討了其(qi)主(zhu)要解(jie)決辦法。

增量配電網是新(xin)(xin)一輪(lun)電力(li)體制改(gai)革(ge)的產物，國家(jia)鼓勵以混合(he)所有(you)(you)(you)制方式發(fa)展配電業務。配電業務向社會資本放開，旨在(zai)通過引入多元化(hua)資本，有(you)(you)(you)效(xiao)提高(gao)配電網建(jian)設運營(ying)效(xiao)率(lv)和用(yong)戶服務質量，提升發(fa)展活力(li)。由于增量配電網是新(xin)(xin)生事(shi)物，有(you)(you)(you)效(xiao)推進試點(dian)項(xiang)目對于各試點(dian)業主(zhu)及地方政府都具有(you)(you)(you)探(tan)索(suo)性和挑戰(zhan)性。雖然國家(jia)發(fa)改(gai)委、國家(jia)能(neng)源(yuan)局頒布的相關文件明確了增量配電業務推進的方向和原則，但(dan)仍存在(zai)較多細節性問題亟需解決。

通過三批次試點進(jin)(jin)(jin)展情況來(lai)看，試點推進(jin)(jin)(jin)過程主要(yao)出(chu)現了業(ye)(ye)主優選不(bu)(bu)公平(ping)、電(dian)(dian)網(wang)企(qi)業(ye)(ye)不(bu)(bu)配(pei)(pei)(pei)合(he)、試點前景不(bu)(bu)明朗、價格(ge)機(ji)(ji)制(zhi)不(bu)(bu)明確、盈(ying)利模式(shi)不(bu)(bu)確定(ding)以及項目(mu)收(shou)益不(bu)(bu)可(ke)觀等(deng)(deng)問題。業(ye)(ye)內專業(ye)(ye)人士(shi)對增量(liang)(liang)配(pei)(pei)(pei)電(dian)(dian)業(ye)(ye)務實施過程中出(chu)現的(de)問題進(jin)(jin)(jin)行(xing)(xing)了深入(ru)研究。葉玲節等(deng)(deng)人對增量(liang)(liang)配(pei)(pei)(pei)電(dian)(dian)業(ye)(ye)務投資主體類型(xing)及盈(ying)利模式(shi)進(jin)(jin)(jin)行(xing)(xing)了分析；黃李明等(deng)(deng)人對增量(liang)(liang)配(pei)(pei)(pei)電(dian)(dian)業(ye)(ye)務的(de)放開方式(shi)、價格(ge)機(ji)(ji)制(zhi)、招標(biao)標(biao)準進(jin)(jin)(jin)行(xing)(xing)了探(tan)(tan)討；羅琦和(he)宋楓對增量(liang)(liang)配(pei)(pei)(pei)電(dian)(dian)網(wang)的(de)配(pei)(pei)(pei)電(dian)(dian)價格(ge)、定(ding)價機(ji)(ji)制(zhi)進(jin)(jin)(jin)行(xing)(xing)了深入(ru)探(tan)(tan)討；侯佳等(deng)(deng)人對業(ye)(ye)主遴選、運營模式(shi)、輸配(pei)(pei)(pei)電(dian)(dian)價核(he)定(ding)等(deng)(deng)關鍵問題進(jin)(jin)(jin)行(xing)(xing)了研究；馬(ma)倩等(deng)(deng)人從電(dian)(dian)網(wang)企(qi)業(ye)(ye)角度出(chu)發，對投資增量(liang)(liang)配(pei)(pei)(pei)電(dian)(dian)網(wang)的(de)風險(xian)性進(jin)(jin)(jin)行(xing)(xing)了探(tan)(tan)討。

本文(wen)以(yi)增量配電業務(wu)相關(guan)政(zheng)策(ce)為基礎，結合(he)前人的(de)研究(jiu)成果，聯系試(shi)點實際情況，分(fen)析增量配電業務(wu)改革過程中(zhong)出現(xian)的(de)主(zhu)要(yao)矛盾(dun)，并探(tan)討(tao)了主(zhu)要(yao)解決辦法。

一、增量配電業務的內涵

根據(ju)電(dian)(dian)(dian)力體制改革的(de)(de)相關文件精神(shen)，配(pei)(pei)(pei)(pei)(pei)(pei)售電(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)有(you)序(xu)向(xiang)社(she)會(hui)資(zi)本放開(kai)(kai)，鼓勵以(yi)混(hun)合所(suo)有(you)制方(fang)式(shi)發(fa)展(zhan)配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)。簡(jian)而(er)言(yan)之(zhi)，增量配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)就是允許除電(dian)(dian)(dian)網(wang)(wang)(wang)企業(ye)(ye)(ye)之(zhi)外的(de)(de)其他(ta)社(she)會(hui)資(zi)本進入配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)。根據(ju)《有(you)序(xu)放開(kai)(kai)配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)業(ye)(ye)(ye)務(wu)管理(li)(li)辦(ban)法(fa)》(以(yi)下簡(jian)稱“《管理(li)(li)辦(ban)法(fa)》”)，增量配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)(ye)(ye)務(wu)可總結為(wei)：除電(dian)(dian)(dian)網(wang)(wang)(wang)企業(ye)(ye)(ye)之(zhi)外的(de)(de)其他(ta)社(she)會(hui)資(zi)本已投資(zi)、建(jian)(jian)設、運營的(de)(de)存量配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)業(ye)(ye)(ye)務(wu)和未來投資(zi)、建(jian)(jian)設、運營的(de)(de)配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)業(ye)(ye)(ye)務(wu)；電(dian)(dian)(dian)網(wang)(wang)(wang)企業(ye)(ye)(ye)與(yu)其他(ta)社(she)會(hui)資(zi)本以(yi)混(hun)合所(suo)有(you)制形式(shi)投資(zi)、建(jian)(jian)設、運營的(de)(de)配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)業(ye)(ye)(ye)務(wu)及在存量基礎上(shang)的(de)(de)增容擴建(jian)(jian)。同時，增量配(pei)(pei)(pei)(pei)(pei)(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)的(de)(de)電(dian)(dian)(dian)壓等級原則上(shang)不(bu)超過110kV，但對于(yu)工業(ye)(ye)(ye)園區、經(jing)濟(ji)開(kai)(kai)發(fa)區等局域電(dian)(dian)(dian)網(wang)(wang)(wang)則不(bu)超過220（330）kV。

從(cong)個別試(shi)點(dian)(dian)項目推進過程中了解到，當地電(dian)(dian)網企業及投(tou)資主(zhu)體誤認為(wei)《管理辦法》對增(zeng)(zeng)量配(pei)電(dian)(dian)業務的(de)解釋(shi)是指(zhi)存在電(dian)(dian)網企業存量資產的(de)區域不能列入增(zeng)(zeng)量配(pei)電(dian)(dian)網試(shi)點(dian)(dian)范圍。此觀點(dian)(dian)混淆了增(zeng)(zeng)量配(pei)電(dian)(dian)業務和增(zeng)(zeng)量配(pei)電(dian)(dian)試(shi)點(dian)(dian)的(de)概念。

《管理辦(ban)法》的(de)初衷是除電(dian)(dian)網(wang)企(qi)(qi)業持(chi)有的(de)存(cun)(cun)量(liang)資(zi)產外，其(qi)他擁有配(pei)(pei)電(dian)(dian)網(wang)存(cun)(cun)量(liang)資(zi)產絕對控股(gu)的(de)公(gong)司（高(gao)新產業園區、經濟(ji)技術(shu)開發區、地方電(dian)(dian)網(wang)、躉售(shou)縣）未經營(ying)(ying)配(pei)(pei)電(dian)(dian)業務(wu)的(de)，其(qi)投資(zi)建設的(de)存(cun)(cun)量(liang)資(zi)產可視同增量(liang)資(zi)產處理。換句(ju)話(hua)說，這(zhe)些擁有配(pei)(pei)電(dian)(dian)網(wang)存(cun)(cun)量(liang)資(zi)產絕對控股(gu)的(de)公(gong)司可以(yi)直(zhi)接(jie)申請(qing)開展配(pei)(pei)電(dian)(dian)業務(wu)，符合售(shou)電(dian)(dian)公(gong)司準入程序后進而開展售(shou)電(dian)(dian)業務(wu)，自(zi)主經營(ying)(ying)擁有配(pei)(pei)電(dian)(dian)網(wang)運營(ying)(ying)權的(de)售(shou)電(dian)(dian)公(gong)司與電(dian)(dian)網(wang)企(qi)(qi)業具(ju)有同等的(de)市(shi)場地位。況且國家公(gong)布的(de)試點基(ji)本都存(cun)(cun)在電(dian)(dian)網(wang)企(qi)(qi)業存(cun)(cun)量(liang)資(zi)產，完全空白的(de)區域基(ji)本沒有，所(suo)以(yi)試點范圍可以(yi)包括存(cun)(cun)量(liang)和增量(liang)配(pei)(pei)電(dian)(dian)網(wang)資(zi)產。

二、增量配電業務改革的進展情況

截至目(mu)前，全(quan)國共有320個增量配電業務試點(dian)，分布于全(quan)國30個省(sheng)區市和新(xin)疆(jiang)生產建(jian)設兵團。其中，河南(nan)省(sheng)最(zui)多，達22個，其次是甘肅省(sheng)、陜西省(sheng)和湖南(nan)省(sheng)，具體如表1所示(shi)。

三批次(ci)試(shi)點(dian)(dian)(dian)中，確定(ding)業(ye)主的(de)試(shi)點(dian)(dian)(dian)約(yue)占(zhan)試(shi)點(dian)(dian)(dian)總數(shu)的(de)32%；電網(wang)公司控股的(de)試(shi)點(dian)(dian)(dian)約(yue)占(zhan)試(shi)點(dian)(dian)(dian)總數(shu)的(de)44%，除電網(wang)企(qi)業(ye)外其他央(yang)企(qi)控股的(de)試(shi)點(dian)(dian)(dian)約(yue)占(zhan)試(shi)點(dian)(dian)(dian)總數(shu)的(de)18%，民營(ying)企(qi)業(ye)控股的(de)試(shi)點(dian)(dian)(dian)約(yue)占(zhan)試(shi)點(dian)(dian)(dian)總數(shu)的(de)25%，如圖(tu)1所示。

由此(ci)可見(jian)，電網(wang)公司在增量配(pei)電業務(wu)改(gai)革中(zhong)仍(reng)占據絕(jue)對地位(wei)，民營企(qi)業的參與度高于除電網(wang)企(qi)業之外(wai)的央企(qi)。

兩(liang)部委在對各試(shi)(shi)點(dian)項(xiang)目進行實地走訪調研時發現(xian)了若干突(tu)出問題，主要表現(xian)在試(shi)(shi)點(dian)推進過程中電(dian)(dian)(dian)網企業在存(cun)量資(zi)產處置、配電(dian)(dian)(dian)區域劃分(fen)、新增電(dian)(dian)(dian)網系統接(jie)入等環節不(bu)配合，政府優選業主不(bu)透明、不(bu)公平等。

2018年10月(yue)，國家發改(gai)(gai)委對試(shi)點項目進展(zhan)緩慢和問題突出的地區(qu)進行了約談(tan)，旨(zhi)在敦促各(ge)試(shi)點項目早日落地見效。隨后(hou)，兩部委通(tong)報(bao)了第一批試(shi)點項目進展(zhan)情況，并要(yao)求試(shi)點項目必須以市場化方式確定投資業主，響應中央電改(gai)(gai)文(wen)件(jian)精神向社會資本(ben)放開增量(liang)配電業務，同時不建議(yi)電網企業或當地政府投資平臺(tai)控股。

針對調研中發現的(de)(de)電(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業(ye)拒(ju)絕向增量(liang)配(pei)電(dian)(dian)(dian)網(wang)(wang)提供電(dian)(dian)(dian)力來(lai)源問題(ti)，要(yao)求電(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業(ye)應提供增量(liang)配(pei)電(dian)(dian)(dian)網(wang)(wang)系統(tong)的(de)(de)公平接(jie)入(ru)服務，尤其是對電(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業(ye)未(wei)參股的(de)(de)項目(mu)，禁止電(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業(ye)封鎖增量(liang)配(pei)電(dian)(dian)(dian)網(wang)(wang)接(jie)入(ru)大電(dian)(dian)(dian)網(wang)(wang)所(suo)必備的(de)(de)相關(guan)信息或(huo)變相阻(zu)撓系統(tong)接(jie)入(ru)。可(ke)見，在增量(liang)配(pei)電(dian)(dian)(dian)業(ye)務改革過程中激發了許多矛盾，也制(zhi)約了增量(liang)配(pei)電(dian)(dian)(dian)業(ye)務的(de)(de)健康(kang)發展。

三、改革主要矛盾分析

1.改革方向與電網企業利益的矛盾

新(xin)一輪電(dian)(dian)(dian)力(li)體制改革通過(guo)在發(fa)電(dian)(dian)(dian)側、售(shou)電(dian)(dian)(dian)側和用電(dian)(dian)(dian)側建立多(duo)元化市(shi)場(chang)主體，恢復電(dian)(dian)(dian)力(li)的(de)商品屬性，從(cong)而提高電(dian)(dian)(dian)網(wang)的(de)運營效(xiao)率和服務質(zhi)量。它打破(po)了(le)電(dian)(dian)(dian)網(wang)企(qi)(qi)業(ye)(ye)電(dian)(dian)(dian)力(li)輸配(pei)、電(dian)(dian)(dian)量統購統銷的(de)壟斷，重新(xin)定(ding)義(yi)了(le)電(dian)(dian)(dian)網(wang)企(qi)(qi)業(ye)(ye)在電(dian)(dian)(dian)力(li)市(shi)場(chang)中的(de)功能及盈利模(mo)式，將電(dian)(dian)(dian)網(wang)企(qi)(qi)業(ye)(ye)利益進行了(le)再分配(pei)。

增量(liang)配電(dian)(dian)(dian)網(wang)(wang)(wang)各試點(dian)(dian)(dian)批復時均有電(dian)(dian)(dian)力(li)用戶的(de)存(cun)在(zai)，也相(xiang)應配套(tao)建設了電(dian)(dian)(dian)力(li)設施，并以(yi)電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)投資(zi)建設居多，配電(dian)(dian)(dian)網(wang)(wang)(wang)完全空白(bai)的(de)試點(dian)(dian)(dian)基本不(bu)存(cun)在(zai)，而增量(liang)配電(dian)(dian)(dian)網(wang)(wang)(wang)的(de)發展勢(shi)必會侵占電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)的(de)市場份額，影響電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)利益(yi)。因此，電(dian)(dian)(dian)網(wang)(wang)(wang)公司在(zai)增量(liang)配電(dian)(dian)(dian)網(wang)(wang)(wang)試點(dian)(dian)(dian)推(tui)進過程中大多不(bu)配合，要求(qiu)控(kong)股試點(dian)(dian)(dian)。從圖1的(de)統計(ji)結果可以(yi)看出，電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)控(kong)股的(de)試點(dian)(dian)(dian)接近50%，且電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)未參(can)與的(de)試點(dian)(dian)(dian)也多因電(dian)(dian)(dian)網(wang)(wang)(wang)企(qi)業(ye)的(de)不(bu)配合至今未開工(gong)或施工(gong)完成后停滯不(bu)前。

自增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)改革相(xiang)關辦法(fa)推出以來，發(fa)電(dian)(dian)(dian)企業(ye)為(wei)拓(tuo)寬業(ye)務領域(yu)，實現“發(fa)-配(pei)(pei)(pei)-售(shou)”一體的(de)業(ye)務格局，參與增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)務的(de)積極性(xing)很大，況且(qie)發(fa)電(dian)(dian)(dian)企業(ye)較其他社會資(zi)本具備(bei)更為(wei)豐富的(de)電(dian)(dian)(dian)力技術經驗、較強的(de)保底供電(dian)(dian)(dian)能(neng)力和雄(xiong)厚的(de)資(zi)金保障(zhang)能(neng)力，是增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)務的(de)優質業(ye)主。因此發(fa)電(dian)(dian)(dian)企業(ye)的(de)參與有利(li)于增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)改革的(de)推進，但因牽涉到(dao)自身發(fa)電(dian)(dian)(dian)計劃、調度等與電(dian)(dian)(dian)網企業(ye)的(de)相(xiang)關利(li)益，許多(duo)發(fa)電(dian)(dian)(dian)企業(ye)逐漸(jian)退出了增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)業(ye)務的(de)競爭。

從(cong)各(ge)試點(dian)進展(zhan)情況看(kan)，來自電(dian)(dian)(dian)網企(qi)(qi)業(ye)的(de)(de)(de)阻力(li)主要表現在電(dian)(dian)(dian)網企(qi)(qi)業(ye)干預招標(biao)、存(cun)量(liang)資(zi)產(chan)處(chu)置困(kun)難、配(pei)電(dian)(dian)(dian)區域劃分不(bu)清以及系統(tong)接入設置障礙等。若(ruo)(ruo)招標(biao)環節(jie)妥協于電(dian)(dian)(dian)網企(qi)(qi)業(ye)，使其控股試點(dian)的(de)(de)(de)決策權仍然在電(dian)(dian)(dian)網企(qi)(qi)業(ye)手中(zhong)，將導致試點(dian)改革失去意義(yi)；若(ruo)(ruo)電(dian)(dian)(dian)網企(qi)(qi)業(ye)存(cun)量(liang)資(zi)產(chan)不(bu)能(neng)得到妥善解決，配(pei)電(dian)(dian)(dian)區域無法理清，則(ze)業(ye)主將無法申請(qing)電(dian)(dian)(dian)力(li)業(ye)務許可證，工作(zuo)無法開展(zhan)；若(ruo)(ruo)剔(ti)除電(dian)(dian)(dian)網存(cun)量(liang)資(zi)產(chan)的(de)(de)(de)供(gong)電(dian)(dian)(dian)區域，很多園區可供(gong)增量(liang)配(pei)電(dian)(dian)(dian)網發展(zhan)的(de)(de)(de)空間非常有限，則(ze)項目無法取(qu)得合理收益，試點(dian)無法存(cun)活。

由于(yu)上述(shu)問題(ti)嚴重阻礙(ai)了(le)增(zeng)量(liang)配電(dian)(dian)(dian)(dian)網(wang)(wang)試(shi)點(dian)(dian)的落地見效，因此國(guo)家(jia)(jia)發(fa)改(gai)委、國(guo)家(jia)(jia)能源局對試(shi)點(dian)(dian)進(jin)行實(shi)地調研后，約談了(le)國(guo)家(jia)(jia)電(dian)(dian)(dian)(dian)網(wang)(wang)、南方電(dian)(dian)(dian)(dian)網(wang)(wang)、內蒙古電(dian)(dian)(dian)(dian)力公司(si)(si)及(ji)6個試(shi)點(dian)(dian)進(jin)展緩慢的省(sheng)份(fen)，從(cong)高層施壓推進(jin)增(zeng)量(liang)配電(dian)(dian)(dian)(dian)業(ye)務的發(fa)展。約談后，國(guo)家(jia)(jia)電(dian)(dian)(dian)(dian)網(wang)(wang)組織(zhi)調研組赴個別試(shi)點(dian)(dian)進(jin)行調研督(du)導，督(du)促相關省(sheng)公司(si)(si)認真領會中央(yang)改(gai)革文件(jian)精神，支(zhi)持社會資本參與增(zeng)量(liang)配電(dian)(dian)(dian)(dian)改(gai)革。要(yao)具體落實(shi)到各(ge)試(shi)點(dian)(dian)，若(ruo)只通(tong)過業(ye)主與電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)協商(shang)，效果甚微，還需要(yao)政府的介入(ru)，從(cong)頂(ding)層施壓或從(cong)中協調。因此，政府、電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)與業(ye)主三方是(shi)否(fou)(fou)協調一致關系到改(gai)革是(shi)否(fou)(fou)成功。

2.改革進度與尚未完善政策的矛盾

目前，全國范(fan)圍內(nei)共(gong)發布增(zeng)量(liang)配(pei)(pei)電業務(wu)相關(guan)政策性(xing)文件33個(ge)（截至收稿(gao)日期）。其(qi)中(zhong)：除(chu)12個(ge)國家(jia)級文件外，其(qi)他(ta)省區(qu)市政策性(xing)文件中(zhong)，江蘇省、湖北(bei)省最多，均為3個(ge)；海南次之，有(you)2個(ge)；重慶、福建、甘肅、河北(bei)、湖南、寧夏、四川(chuan)、山(shan)東、山(shan)西、陜西、天(tian)津、云南、浙江均為1個(ge)，無(wu)配(pei)(pei)套(tao)的地區(qu)性(xing)文件。

國家(jia)頒布的(de)(de)(de)《管理辦(ban)(ban)法》只(zhi)規定了(le)增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)改(gai)革(ge)的(de)(de)(de)方(fang)向與(yu)原則，許多細節性的(de)(de)(de)問題亟(ji)需解決(jue)。雖然后續又出(chu)臺了(le)《關于制(zhi)定地(di)方(fang)電(dian)網(wang)和增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)配(pei)(pei)電(dian)價格的(de)(de)(de)指導意見(jian)》、《增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)業務配(pei)(pei)電(dian)區域(yu)劃分實(shi)施(shi)辦(ban)(ban)法（試行(xing)）》、《關于進一步(bu)推進增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)業務改(gai)革(ge)的(de)(de)(de)通知（征求意見(jian)稿）》等文(wen)(wen)件，對增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)配(pei)(pei)電(dian)價格、配(pei)(pei)電(dian)區域(yu)劃分、存(cun)量(liang)(liang)(liang)(liang)資產處置(zhi)及增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)規劃等重(zhong)要環節作了(le)進一步(bu)的(de)(de)(de)指導，但各試點在改(gai)革(ge)過程中仍(reng)面臨(lin)諸多困難，無法依(yi)靠(kao)現(xian)行(xing)政策(ce)(ce)解決(jue)。且(qie)除(chu)江(jiang)蘇省明確增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)技術規范和供電(dian)服務規范、四川省明確電(dian)網(wang)公司不得(de)控股增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)運營企業外，其他(ta)省區市政策(ce)(ce)性文(wen)(wen)件與(yu)國家(jia)級文(wen)(wen)件均大(da)同小異(yi)，沒有突破(po)性。因(yin)此，當(dang)前政策(ce)(ce)無法滿(man)足增(zeng)(zeng)量(liang)(liang)(liang)(liang)配(pei)(pei)電(dian)網(wang)改(gai)革(ge)的(de)(de)(de)進度。

增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)網(wang)定(ding)價機(ji)制是增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)業務改(gai)革的(de)核(he)(he)心(xin)。目前，增(zeng)量(liang)配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)網(wang)配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價格核(he)(he)定(ding)辦(ban)法(fa)還沒有出(chu)臺。《管理辦(ban)法(fa)》中(zhong)表示：配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價格核(he)(he)定(ding)前，暫按售電(dian)(dian)(dian)(dian)公司或電(dian)(dian)(dian)(dian)力用(yong)戶接(jie)入(ru)電(dian)(dian)(dian)(dian)壓(ya)等級對應的(de)省級電(dian)(dian)(dian)(dian)網(wang)共用(yong)網(wang)絡輸配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價扣(kou)減(jian)該配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)網(wang)接(jie)入(ru)電(dian)(dian)(dian)(dian)壓(ya)等級對應的(de)省級電(dian)(dian)(dian)(dian)網(wang)共用(yong)網(wang)絡輸配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價執行(xing)。其僅對配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價格核(he)(he)定(ding)前的(de)過(guo)渡時(shi)期提出(chu)了建議(yi)，并未(wei)給出(chu)配(pei)(pei)(pei)電(dian)(dian)(dian)(dian)價格的(de)核(he)(he)定(ding)方法(fa)。

有(you)的(de)園區試(shi)點(dian)范(fan)圍(wei)內(nei)己建(jian)有(you)滿足當前負(fu)荷需(xu)求的(de)變(bian)電(dian)(dian)(dian)站，因避免重(zhong)復建(jian)設，在短(duan)期負(fu)荷需(xu)求增長緩慢階段無(wu)(wu)法(fa)另建(jian)變(bian)電(dian)(dian)(dian)站，加(jia)之電(dian)(dian)(dian)網(wang)(wang)企(qi)業不(bu)(bu)妥協(xie)，不(bu)(bu)肯處置(zhi)其(qi)配電(dian)(dian)(dian)網(wang)(wang)資產，致使試(shi)點(dian)公司因沒有(you)電(dian)(dian)(dian)壓等級差(cha)，無(wu)(wu)法(fa)從(cong)(cong)配電(dian)(dian)(dian)服(fu)務中獲(huo)(huo)利。比如江西省(sheng)某試(shi)點(dian)公司，其(qi)試(shi)點(dian)范(fan)圍(wei)包括國網(wang)(wang)1座220kV變(bian)電(dian)(dian)(dian)站和3座110kV變(bian)電(dian)(dian)(dian)站，因避免重(zhong)復建(jian)設，國網(wang)(wang)拒絕(jue)將其(qi)資產轉讓(rang)，試(shi)點(dian)公司無(wu)(wu)法(fa)從(cong)(cong)現行(xing)增量配電(dian)(dian)(dian)網(wang)(wang)價格機制中獲(huo)(huo)利，因此只(zhi)得收購園區內(nei)用(yong)電(dian)(dian)(dian)企(qi)業自建(jian)的(de)110kV變(bian)電(dian)(dian)(dian)站。

超過(guo)50%的增量配(pei)(pei)電網(wang)業(ye)主表示，現行的增量配(pei)(pei)電網(wang)價格機(ji)制(zhi)無法讓試點公司在配(pei)(pei)售電業(ye)務中獲(huo)得可(ke)觀利(li)益(yi)，只能依存綜合能源供(gong)應獲(huo)取(qu)收益(yi)。因此，制(zhi)定完善的增量配(pei)(pei)電網(wang)價格核定辦(ban)法，可(ke)使投(tou)資業(ye)主明確(que)項(xiang)目收益(yi)，增強投(tou)資信心，有(you)利(li)于試點改革的深(shen)入推進。

同(tong)樣，存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)處(chu)置(zhi)難嚴重(zhong)制(zhi)(zhi)約(yue)了(le)增(zeng)(zeng)量(liang)(liang)(liang)(liang)(liang)配電(dian)(dian)業(ye)(ye)(ye)(ye)務的改革發展。目前，批復的試(shi)點(dian)(dian)多(duo)(duo)數都存(cun)(cun)在電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)的存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)，雖然《增(zeng)(zeng)量(liang)(liang)(liang)(liang)(liang)配電(dian)(dian)業(ye)(ye)(ye)(ye)務配電(dian)(dian)區(qu)域(yu)劃(hua)分實施(shi)辦法(試(shi)行)》中(zhong)對存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)處(chu)置(zhi)方(fang)(fang)式(shi)做(zuo)(zuo)了(le)明確說明：以資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)入股(gu)、出售、產(chan)(chan)(chan)(chan)(chan)權(quan)置(zhi)換及租賃方(fang)(fang)式(shi)進行處(chu)置(zhi)。但(dan)是具體(ti)實施(shi)到此環節，仍有許多(duo)(duo)問(wen)(wen)題，如存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)價(jia)值評估(gu)，應(ying)制(zhi)(zhi)定管(guan)理辦法，做(zuo)(zuo)到公(gong)平公(gong)正，政府加(jia)大(da)監管(guan)力度；電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)以存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)入股(gu)，其資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)價(jia)值可(ke)使電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)達到控股(gu)，此情況應(ying)制(zhi)(zhi)定相(xiang)應(ying)管(guan)理細則，妥善解(jie)決(jue)；如電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)評估(gu)所占(zhan)股(gu)份比例(li)不得使電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)控股(gu)，多(duo)(duo)出的資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)價(jia)值部分應(ying)通過資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)轉讓(rang)等方(fang)(fang)式(shi)轉讓(rang)給(gei)業(ye)(ye)(ye)(ye)主(zhu)；若業(ye)(ye)(ye)(ye)主(zhu)及電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)不能通過協商解(jie)決(jue)存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)處(chu)置(zhi)問(wen)(wen)題，但(dan)剔除存(cun)(cun)量(liang)(liang)(liang)(liang)(liang)資(zi)(zi)(zi)(zi)產(chan)(chan)(chan)(chan)(chan)及其供電(dian)(dian)區(qu)域(yu)后試(shi)點(dian)(dian)項(xiang)目無法存(cun)(cun)活(huo)的，此情況可(ke)出臺相(xiang)應(ying)措施(shi)，使得業(ye)(ye)(ye)(ye)主(zhu)與(yu)電(dian)(dian)網(wang)(wang)企業(ye)(ye)(ye)(ye)達到利(li)益(yi)平衡點(dian)(dian)。

此外，目前項目建設環節缺乏配套建設標(biao)準(zhun)。標(biao)準(zhun)出臺(tai)的(de)(de)主要目的(de)(de)是為(wei)了避免業主為(wei)壓縮投(tou)(tou)資成本，使(shi)試點區配電網缺乏可靠性、安(an)全性，嚴重損害用戶利益及配電網安(an)全。在(zai)項目經營(ying)環節，地方政(zheng)府應建立以運營(ying)績效(xiao)為(wei)導向的(de)(de)激勵(li)機(ji)制(zhi)，讓各投(tou)(tou)資業主在(zai)保證電網運營(ying)安(an)全的(de)(de)同時節約運營(ying)成本，提升運營(ying)效(xiao)率。

因此，各試點(dian)所屬地方政(zheng)府應以兩(liang)部委發(fa)布的政(zheng)策為導向，因地制(zhi)宜制(zhi)定增量(liang)配(pei)電網試點(dian)管理(li)及推進(jin)辦法，讓各業主在每個環(huan)節都可找到政(zheng)策支(zhi)撐(cheng)點(dian)。

3.中央大力改革與地方執行不力的矛盾

為促進各增(zeng)量配(pei)電(dian)業(ye)務(wu)試點(dian)項(xiang)目的(de)順利推進，國家發改委(wei)(wei)、能源局(ju)組成調研組對各試點(dian)進行(xing)實地(di)走訪調研，并對問(wen)題突出區域進行(xing)約談(tan)，隨后兩部委(wei)(wei)通報了第一批(pi)增(zeng)量配(pei)電(dian)網(wang)試點(dian)進展情況：一些地(di)方政府和電(dian)網(wang)企業(ye)在改革關鍵(jian)問(wen)題、關鍵(jian)環節上認識不到(dao)位，與中央(yang)改革精神(shen)存在偏(pian)差，配(pei)售(shou)電(dian)業(ye)務(wu)向社會(hui)資本放(fang)開的(de)要求未(wei)得到(dao)有效落實。

出現此現象的(de)(de)主(zhu)要原(yuan)因如下：一是(shi)地(di)(di)方政府對(dui)政策解(jie)讀有(you)偏差，無(wu)法(fa)(fa)準確(que)把握(wo)文件精神；二是(shi)大(da)部分地(di)(di)方政府在(zai)改(gai)革推進過程中缺乏必備的(de)(de)電力專業(ye)知識，無(wu)法(fa)(fa)從細(xi)(xi)節上(shang)做到嚴謹細(xi)(xi)致；三是(shi)缺乏主(zhu)動(dong)性，地(di)(di)方政府與上(shang)級政府、電網企業(ye)及業(ye)主(zhu)的(de)(de)溝(gou)通不夠積極主(zhu)動(dong)，對(dui)于改(gai)革中的(de)(de)問題和難點沒有(you)主(zhu)動(dong)求(qiu)解(jie)意識。

4.上述原因導致試點推進中出現的問題有：

在(zai)(zai)某些試(shi)點(dian)(dian)申(shen)報(bao)環(huan)節，當(dang)地政府因未能深刻理解增量(liang)配(pei)電(dian)業務的內涵，對園(yuan)區負(fu)荷(he)現(xian)狀及(ji)增長(chang)沒做好(hao)評估就申(shen)報(bao)試(shi)點(dian)(dian)，使(shi)(shi)得許多(duo)園(yuan)區類試(shi)點(dian)(dian)并不適合(he)增量(liang)配(pei)電(dian)網項目的發展，部(bu)分試(shi)點(dian)(dian)出(chu)現(xian)流標、撤資，即使(shi)(shi)確定(ding)了業主，項目也處于停滯狀態，后(hou)期(qi)經營(ying)存在(zai)(zai)困難。

在(zai)業(ye)主(zhu)擇(ze)(ze)定環節，有(you)試點政府在(zai)園(yuan)(yuan)區(qu)配電(dian)網(wang)規劃尚未完成的(de)情況(kuang)下(xia)進行招標，且擬選(xuan)擇(ze)(ze)電(dian)價(jia)折扣力度(du)大的(de)業(ye)主(zhu)，致(zhi)使各投資(zi)企業(ye)自行對(dui)園(yuan)(yuan)區(qu)配電(dian)網(wang)進行規劃并預(yu)測(ce)(ce)收(shou)益，導致(zhi)對(dui)園(yuan)(yuan)區(qu)負荷預(yu)測(ce)(ce)和電(dian)量預(yu)測(ce)(ce)與項目投資(zi)收(shou)益的(de)預(yu)測(ce)(ce)差距較大，最(zui)終報價(jia)無(wu)可比性，更無(wu)有(you)效性，擇(ze)(ze)定的(de)業(ye)主(zhu)履(lv)約能力存疑。

對于(yu)各試(shi)點(dian)(dian)政府(fu)(fu)，增量配(pei)電(dian)(dian)(dian)網不僅是(shi)降低電(dian)(dian)(dian)價(jia)、吸引(yin)招商(shang)引(yin)資(zi)的(de)(de)工具，更是(shi)轉變當前電(dian)(dian)(dian)力市場業態的(de)(de)一(yi)面旗幟，關(guan)乎國計(ji)民生。政府(fu)(fu)應擺正(zheng)在(zai)增量配(pei)電(dian)(dian)(dian)改革中的(de)(de)位置，深入研究(jiu)相(xiang)關(guan)政策，對試(shi)點(dian)(dian)上報、試(shi)點(dian)(dian)規(gui)劃(hua)、業主招標、項目(mu)(mu)核準(zhun)、項目(mu)(mu)建設以及后期經營等各個環節做(zuo)到有(you)力管(guan)控，推動增量配(pei)電(dian)(dian)(dian)業務健(jian)康有(you)序發(fa)展(zhan)。

四、相關對策及建議

在增(zeng)量配電業務改革(ge)中，地(di)方政(zheng)府不僅是(shi)參與者，更(geng)是(shi)監管者，起到了統(tong)籌規劃(hua)、宏(hong)觀指導、矛盾協調的作用(yong)。在推進試點落(luo)地(di)過程中：

首先，應深入研究(jiu)政策、領(ling)會改(gai)革精神(shen)，做好與試點園區、當地電網公司及投資業(ye)主的溝通協調工作，及時聽(ting)取各方的意(yi)見(jian)及建議；

其次，以國(guo)家政策為指導方(fang)向，根據地(di)(di)方(fang)試點情況，因地(di)(di)制宜制定增量(liang)配電(dian)業(ye)務實施(shi)細則(ze)，使各(ge)環節有政策保(bao)障(zhang)；

最后(hou)，要加強自身電(dian)力供應、電(dian)力輸配(pei)、電(dian)力營銷等相關(guan)專(zhuan)業知(zhi)識的學習，全面認識增量配(pei)電(dian)業務，從細(xi)節上進行指導(dao)和監管(guan)；

同時(shi)，政府也(ye)應(ying)加強對試點項目的(de)全程(cheng)監管，做(zuo)到(dao)規(gui)劃環節避免重復投(tou)資、交叉供(gong)電，招標環節公(gong)開、公(gong)平、公(gong)正，建設環節嚴格把控質(zhi)量(liang)，運營階段確(que)保供(gong)電安(an)全、穩(wen)定和可靠。

面對(dui)新一(yi)(yi)輪電(dian)(dian)(dian)力體制改革(ge)浪(lang)潮，電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)企(qi)業需服從改革(ge)大局，轉(zhuan)變自(zi)(zi)身心態，以開放包容的(de)態度參與(yu)到(dao)增量配(pei)電(dian)(dian)(dian)業務(wu)中。在增量配(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)規劃環節，電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)企(qi)業應積(ji)極配(pei)合當地政(zheng)府完(wan)成(cheng)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)規劃，并與(yu)當地電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)規劃達(da)到(dao)統一(yi)(yi)協調；積(ji)極參與(yu)增量配(pei)電(dian)(dian)(dian)業務(wu)，引(yin)入其他社(she)會資(zi)本，建成(cheng)混合所有制公司；在后續建設及運(yun)(yun)營環節，要充分發(fa)揮自(zi)(zi)身技術(shu)與(yu)經驗上的(de)優勢，保證(zheng)供電(dian)(dian)(dian)服務(wu)質量，并做好增量配(pei)電(dian)(dian)(dian)網(wang)(wang)(wang)(wang)的(de)并網(wang)(wang)(wang)(wang)、調度及運(yun)(yun)行監(jian)督。

各(ge)社會資本(ben)在做好(hao)項目(mu)安全性(xing)(xing)、效(xiao)益性(xing)(xing)、風險性(xing)(xing)預測的(de)同時(shi)，也要(yao)著眼長遠(yuan)，因(yin)(yin)為增(zeng)量配電(dian)(dian)業務不是一個單純的(de)配電(dian)(dian)網(wang)項目(mu)，各(ge)試(shi)(shi)點基本(ben)是當地(di)負荷(he)集中區，若掌(zhang)握了(le)(le)試(shi)(shi)點開(kai)發權就掌(zhang)握了(le)(le)客戶群，除向用(yong)(yong)戶提供(gong)電(dian)(dian)力供(gong)應(ying)外(wai)，還(huan)可(ke)直接向用(yong)(yong)戶有(you)償提供(gong)綜合(he)能源、咨(zi)詢(xun)、金融等(deng)多(duo)種服務。從試(shi)(shi)點推(tui)進的(de)實際情況可(ke)知，許多(duo)央(yang)企因(yin)(yin)現行的(de)投資管理機制，局限于(yu)投資收益率等(deng)因(yin)(yin)素，對增(zeng)量配電(dian)(dian)業務的(de)參(can)與(yu)(yu)度滯后于(yu)地(di)方政府(fu)控股企業及民營企業，但央(yang)企因(yin)(yin)其自身具備資金、技術(shu)、信譽上的(de)優勢(shi)，其參(can)與(yu)(yu)更有(you)助(zhu)于(yu)穩(wen)步推(tui)進增(zeng)量配電(dian)(dian)業務改革。

因此，在投(tou)資(zi)增(zeng)量(liang)配(pei)(pei)電(dian)(dian)(dian)網業務(wu)時，央企應(ying)全面(mian)考慮，大膽(dan)決策，把握電(dian)(dian)(dian)改帶來的(de)投(tou)資(zi)機遇。同時，民營企業也應(ying)發揮自身業務(wu)及機制上的(de)優勢，積(ji)極參與增(zeng)量(liang)配(pei)(pei)電(dian)(dian)(dian)業務(wu)改革(ge)，不(bu)斷提升自身配(pei)(pei)電(dian)(dian)(dian)網建設(she)(she)運營、電(dian)(dian)(dian)力營銷(xiao)、綜(zong)合能源服務(wu)等方面(mian)的(de)技術實力，穩固建設(she)(she)增(zeng)量(liang)配(pei)(pei)電(dian)(dian)(dian)網，適應(ying)不(bu)斷變換的(de)電(dian)(dian)(dian)力市場，真正將增(zeng)量(liang)配(pei)(pei)電(dian)(dian)(dian)業務(wu)改革(ge)落到實處(chu)。

五、結語

增量配(pei)電試點改革(ge)過程中(zhong)出現制約改革(ge)進(jin)程的矛盾(dun)難題，主要是改革(ge)觸及(ji)了電網(wang)(wang)企業(ye)利益，致(zhi)使電網(wang)(wang)企業(ye)不(bu)配(pei)合，試點項目推進(jin)受到阻(zu)礙(ai)；相關政(zheng)策未完善(shan)，致(zhi)使推進(jin)過程中(zhong)細(xi)節性問題不(bu)能得到妥善(shan)解(jie)(jie)決；地方政(zheng)府(fu)(fu)未能深刻領(ling)會改革(ge)精(jing)神，缺乏(fa)電力專業(ye)知識(shi)及(ji)主動求(qiu)解(jie)(jie)意識(shi)，致(zhi)使政(zheng)府(fu)(fu)作用未能充(chong)分(fen)發(fa)揮。

因此，試點項(xiang)目落(luo)(luo)地成效需要(yao)政府、電(dian)網及(ji)業(ye)(ye)主(zhu)(zhu)三方的共同努力，地方政府協(xie)調監管，電(dian)網企(qi)業(ye)(ye)轉變心態(tai)，投資(zi)業(ye)(ye)主(zhu)(zhu)在積極參與(yu)的同時(shi)還要(yao)加強(qiang)自身業(ye)(ye)務能(neng)(neng)力建設，只有如此，增(zeng)量配電(dian)業(ye)(ye)務改革的矛盾才(cai)能(neng)(neng)順(shun)利(li)解決，試點項(xiang)目才(cai)能(neng)(neng)早(zao)日落(luo)(luo)地見效。