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自(zi)2015年3月本(ben)輪(lun)電(dian)力體制改革(ge)正式啟動，一轉(zhuan)眼(yan)時間已經(jing)過去了五(wu)(wu)年。在(zai)(zai)“十(shi)三五(wu)(wu)”正在(zai)(zai)收(shou)官、“十(shi)四五(wu)(wu)”即將啟航的(de)時刻，我們有(you)必要認真回顧本(ben)輪(lun)電(dian)改取得的(de)成就、反思存在(zai)(zai)的(de)問題(ti)、審視面(mian)臨(lin)的(de)困難、展(zhan)望(wang)后續努力的(de)方向。

對(dui)于(yu)電改(gai)的成(cheng)(cheng)效(xiao)，最直觀的感受是(shi)電價。本(ben)文將從(cong)電價視角，觀察本(ben)輪電改(gai)以來的電價水平、電價機(ji)制(zhi)、電價外成(cheng)(cheng)本(ben)等進展和(he)問(wen)(wen)題(ti)，并對(dui)一些(xie)關鍵問(wen)(wen)題(ti)提出建議。

一、從電價水平看本輪電改

電價水平顯著降低

本輪電(dian)(dian)改以來，我國電(dian)(dian)價總(zong)體水(shui)平明顯(xian)降(jiang)低(di)。一般(ban)工(gong)商業電(dian)(dian)價下降(jiang)最(zui)為明顯(xian)，全國平均(jun)降(jiang)低(di)超過20%。電(dian)(dian)價水(shui)平的降(jiang)低(di)對于(yu)支持實體經濟，特別(bie)是中小企(qi)業的生存和(he)發展發揮了積極作用(yong)。

近年來電(dian)價水平的降低(di)，主要歸功于兩方面的因素：

一是上網(wang)電(dian)價降低(di)。隨著我國(guo)經(jing)濟發展(zhan)進入(ru)“新常態”，電(dian)力(li)出現了供過于(yu)求的局面。在這種形勢(shi)下(xia)開展(zhan)電(dian)力(li)交(jiao)易，發電(dian)行業會(hui)降低(di)利潤甚至(zhi)虧損，市(shi)場(chang)交(jiao)易價格自然(ran)會(hui)降低(di)。

二是(shi)稅(shui)(shui)費降低(di)。近兩(liang)三(san)年來，國家出(chu)臺了(le)一系列政策(ce)，大幅(fu)度(du)降低(di)了(le)增值(zhi)稅(shui)(shui)、政府性基金及附(fu)加等。

各類用戶之間的交叉補貼得到了改善，但仍然嚴重

本(ben)輪電(dian)改顯著(zhu)降低了一般(ban)工商(shang)(shang)業(ye)電(dian)價(jia)(jia)。一些省(sheng)區(qu)甚至出現了一般(ban)工商(shang)(shang)業(ye)電(dian)價(jia)(jia)和成本(ben)倒掛的情況。

大(da)工(gong)(gong)業(ye)、居民(min)和農業(ye)用(yong)電(dian)價(jia)(jia)格這五(wu)年(nian)來變化不(bu)大(da)。2019年(nian)甚至還出現了(le)大(da)工(gong)(gong)業(ye)用(yong)電(dian)不(bu)含(han)(han)稅電(dian)價(jia)(jia)不(bu)降(jiang)反升(sheng)的情況，原因是(shi)電(dian)網企業(ye)增(zeng)值稅稅率從(cong)16%調整為13%形成(cheng)的降(jiang)價(jia)(jia)空間全部用(yong)于降(jiang)低一般工(gong)(gong)商業(ye)電(dian)價(jia)(jia)，而(er)大(da)工(gong)(gong)業(ye)用(yong)戶含(han)(han)稅電(dian)價(jia)(jia)不(bu)變，由此造成(cheng)了(le)大(da)工(gong)(gong)業(ye)用(yong)電(dian)不(bu)含(han)(han)稅電(dian)價(jia)(jia)升(sheng)高。

各電壓等級之間的交叉補貼沒有改善

由(you)于長期以來交叉補(bu)(bu)貼的(de)影響，我國普遍(bian)存在高壓用電(dian)(dian)對低(di)壓用電(dian)(dian)的(de)補(bu)(bu)貼，結果(guo)就是高壓電(dian)(dian)價過(guo)高，而低(di)壓電(dian)(dian)價偏低(di)。

這個(ge)(ge)問(wen)題本來(lai)是原有(you)電價(jia)(jia)機制（目(mu)錄電價(jia)(jia)）的問(wen)題，但由于(yu)在(zai)核(he)定第一個(ge)(ge)監管周(zhou)期(qi)輸配(pei)電價(jia)(jia)時，考(kao)慮(lv)了與(yu)目(mu)錄電價(jia)(jia)的“銜接”，導(dao)致這個(ge)(ge)問(wen)題也被帶到了輸配(pei)電價(jia)(jia)中。

這個問題正是(shi)當前諸多(duo)問題的(de)根源，例如：轉(zhuan)供電(dian)(dian)(dian)(dian)(dian)屢(lv)禁不(bu)止，甚至(zhi)愈演愈烈。由(you)(you)于(yu)電(dian)(dian)(dian)(dian)(dian)壓(ya)等級(ji)(ji)之(zhi)間(jian)的(de)價(jia)(jia)差過(guo)低(di)(di)，造成(cheng)(cheng)了(le)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業只愿意(yi)投(tou)(tou)資建(jian)(jian)設(she)(she)高壓(ya)輸(shu)電(dian)(dian)(dian)(dian)(dian)設(she)(she)施(shi)，低(di)(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)設(she)(she)施(shi)往往是(shi)電(dian)(dian)(dian)(dian)(dian)力用戶(hu)被迫自己(ji)投(tou)(tou)資建(jian)(jian)設(she)(she)，部(bu)分無(wu)力承(cheng)擔(dan)這些投(tou)(tou)資的(de)電(dian)(dian)(dian)(dian)(dian)力用戶(hu)只能找已(yi)建(jian)(jian)設(she)(she)了(le)配(pei)電(dian)(dian)(dian)(dian)(dian)設(she)(she)施(shi)的(de)用戶(hu)接電(dian)(dian)(dian)(dian)(dian)，于(yu)是(shi)形成(cheng)(cheng)了(le)轉(zhuan)供電(dian)(dian)(dian)(dian)(dian)；增量配(pei)電(dian)(dian)(dian)(dian)(dian)改(gai)革(ge)試(shi)點項目已(yi)推四批，但(dan)鮮有成(cheng)(cheng)功案例。同(tong)樣是(shi)因為電(dian)(dian)(dian)(dian)(dian)壓(ya)等級(ji)(ji)之(zhi)間(jian)的(de)價(jia)(jia)差過(guo)低(di)(di)，而(er)(er)配(pei)電(dian)(dian)(dian)(dian)(dian)企(qi)(qi)業收取的(de)配(pei)電(dian)(dian)(dian)(dian)(dian)價(jia)(jia)格又無(wu)法超越這個價(jia)(jia)差，導致了(le)全國性(xing)的(de)增量配(pei)電(dian)(dian)(dian)(dian)(dian)業務改(gai)革(ge)停滯；進(jin)一步扭(niu)曲輸(shu)配(pei)電(dian)(dian)(dian)(dian)(dian)價(jia)(jia)，導致惡(e)性(xing)循環。由(you)(you)于(yu)電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)不(bu)愿意(yi)投(tou)(tou)資低(di)(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)設(she)(she)施(shi)，導致電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)準許成(cheng)(cheng)本中(zhong)低(di)(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)成(cheng)(cheng)本偏低(di)(di)，從(cong)而(er)(er)導致核定的(de)輸(shu)配(pei)電(dian)(dian)(dian)(dian)(dian)價(jia)(jia)在電(dian)(dian)(dian)(dian)(dian)壓(ya)等級(ji)(ji)之(zhi)間(jian)的(de)價(jia)(jia)差偏低(di)(di)，進(jin)而(er)(er)引導電(dian)(dian)(dian)(dian)(dian)網(wang)(wang)企(qi)(qi)業避免投(tou)(tou)資低(di)(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)設(she)(she)施(shi)，最終形成(cheng)(cheng)了(le)惡(e)性(xing)循環。

二、從電價機制看本輪電改

新的電價機制已基本成型

本輪電(dian)改(gai)最核心的(de)(de)目標就是(shi)建立“市(shi)(shi)場交易價(jia)(jia)格(ge)+輸(shu)(shu)配(pei)(pei)電(dian)價(jia)(jia)”這(zhe)(zhe)(zhe)個新的(de)(de)電(dian)價(jia)(jia)形成機(ji)(ji)制。“市(shi)(shi)場交易價(jia)(jia)格(ge)”是(shi)通過市(shi)(shi)場競爭來(lai)發現電(dian)能(neng)的(de)(de)價(jia)(jia)格(ge)，這(zhe)(zhe)(zhe)部分價(jia)(jia)格(ge)反映的(de)(de)是(shi)電(dian)能(neng)的(de)(de)供需平衡情況，可能(neng)是(shi)快速變化的(de)(de)；而(er)“輸(shu)(shu)配(pei)(pei)電(dian)價(jia)(jia)”則是(shi)由監管機(ji)(ji)構(gou)依據(ju)規則來(lai)核定，這(zhe)(zhe)(zhe)部分情況反映的(de)(de)是(shi)電(dian)網企業(ye)合理的(de)(de)輸(shu)(shu)配(pei)(pei)電(dian)成本（一般還要考慮其(qi)合理收(shou)益(yi)），在一段(duan)時期(qi)內保持穩定。

當前這(zhe)個目標已經基本實現(xian)：一是在“市場交易價(jia)(jia)(jia)格(ge)(ge)”方(fang)面，全(quan)國(guo)各省(sheng)區(qu)基本都建(jian)立(li)了電(dian)(dian)(dian)力交易中(zhong)心，2019年市場化交易電(dian)(dian)(dian)量在總(zong)用電(dian)(dian)(dian)量中(zhong)的占比已經超過30%；幾個試(shi)點省(sheng)份的電(dian)(dian)(dian)力現(xian)貨(huo)市場均已開(kai)展(zhan)了試(shi)結算(suan)，很快(kuai)就(jiu)能正(zheng)式運行；二是在“輸(shu)配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)”方(fang)面，2016年至(zhi)2017年，《省(sheng)級電(dian)(dian)(dian)網輸(shu)配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)定(ding)(ding)價(jia)(jia)(jia)辦法（試(shi)行）》、《區(qu)域電(dian)(dian)(dian)網輸(shu)電(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)(ge)定(ding)(ding)價(jia)(jia)(jia)辦法（試(shi)行）》和《跨省(sheng)跨區(qu)專項工程輸(shu)電(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)(ge)定(ding)(ding)價(jia)(jia)(jia)辦法（試(shi)行）》相(xiang)繼出臺，2017年全(quan)國(guo)各省(sheng)區(qu)基本都核定(ding)(ding)了輸(shu)配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)，新監管周期的輸(shu)配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)也即將公布并(bing)從今年開(kai)始實施。

當前，新(xin)舊兩套電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)機(ji)(ji)(ji)制(zhi)在雙軌運行，因為工(gong)商業用(yong)電(dian)(dian)(dian)(dian)中(zhong)仍(reng)有部分用(yong)戶未(wei)參與電(dian)(dian)(dian)(dian)力交易(yi)，仍(reng)然(ran)在沿用(yong)目錄電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)。如果國家發改委去年(nian)底印(yin)發的《關(guan)于深化燃煤發電(dian)(dian)(dian)(dian)上網電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)形成機(ji)(ji)(ji)制(zhi)改革的指導意見》（發改價(jia)(jia)(jia)格規〔2019〕1658號(hao)）中(zhong)提出的“基準(zhun)(zhun)價(jia)(jia)(jia)+浮(fu)動(dong)”機(ji)(ji)(ji)制(zhi)能(neng)按計劃在2020年(nian)落(luo)地，屆時(shi)所有的經營(ying)性(xing)用(yong)電(dian)(dian)(dian)(dian)量都(dou)會基于新(xin)的電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)機(ji)(ji)(ji)制(zhi)，只是其中(zhong)的“市場交易(yi)價(jia)(jia)(jia)格”采用(yong)“基準(zhun)(zhun)價(jia)(jia)(jia)+浮(fu)動(dong)”機(ji)(ji)(ji)制(zhi)形成而已。

原電價機制（目錄電價）的影響仍廣泛存在

一方面由于(yu)目(mu)錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)已經根深蒂固(gu)，再加(jia)(jia)上(shang)“降電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)”需要一個“錨(mao)”來參(can)照，即使對于(yu)已經參(can)與了電(dian)(dian)(dian)力(li)市(shi)場(chang)(chang)交(jiao)(jiao)易(yi)的(de)用電(dian)(dian)(dian)，目(mu)錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)“身(shen)影”仍隨處可(ke)見(jian)，例如：為了讓電(dian)(dian)(dian)力(li)用戶體驗到降電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)“獲得感”，很多省區(qu)在電(dian)(dian)(dian)力(li)市(shi)場(chang)(chang)交(jiao)(jiao)易(yi)的(de)電(dian)(dian)(dian)費(fei)結算環節(jie)并(bing)沒有(you)采(cai)用新的(de)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)機(ji)制（沒有(you)采(cai)用核定的(de)輸配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)），而是(shi)采(cai)用“價(jia)(jia)(jia)(jia)(jia)差”模式，在原有(you)目(mu)錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)上(shang)浮動；經過多輪降價(jia)(jia)(jia)(jia)(jia)后(hou)，當前一般(ban)工(gong)商(shang)業用電(dian)(dian)(dian)目(mu)錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)較低(di)，在一些(xie)地(di)方已經低(di)于(yu)新電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)機(ji)制形(xing)成的(de)價(jia)(jia)(jia)(jia)(jia)格，這會阻礙一般(ban)工(gong)商(shang)業用戶進(jin)入電(dian)(dian)(dian)力(li)市(shi)場(chang)(chang)參(can)與交(jiao)(jiao)易(yi)；原有(you)的(de)目(mu)錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)中有(you)峰谷分時(shi)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)、豐枯(ku)季節(jie)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)等(deng)，新的(de)價(jia)(jia)(jia)(jia)(jia)格機(ji)制無法(fa)與這些(xie)價(jia)(jia)(jia)(jia)(jia)格“銜接”，同樣導(dao)致部分用戶不愿意進(jin)入電(dian)(dian)(dian)力(li)市(shi)場(chang)(chang)，甚至呼吁加(jia)(jia)大峰谷電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)價(jia)(jia)(jia)(jia)(jia)差。

行政干預電價有增無減

盡(jin)管(guan)“使市場在資(zi)源配置中(zhong)起(qi)決定性作用”、“形成(cheng)主(zhu)要由市場決定能源價(jia)(jia)(jia)格的(de)(de)機(ji)制”是本(ben)輪(lun)電(dian)(dian)改的(de)(de)指(zhi)導思想，而且新的(de)(de)電(dian)(dian)價(jia)(jia)(jia)形成(cheng)機(ji)制也已經基本(ben)成(cheng)型，但“看(kan)得見(jian)的(de)(de)手”仍在直(zhi)接干預電(dian)(dian)價(jia)(jia)(jia)，甚至比本(ben)輪(lun)電(dian)(dian)改前更加(jia)頻繁(fan)。當(dang)前一些地(di)(di)(di)方(fang)政府直(zhi)接干預電(dian)(dian)價(jia)(jia)(jia)的(de)(de)主(zhu)要方(fang)式包括(kuo)：為(wei)(wei)了(le)滿足“去(qu)落后(hou)產能”等(deng)宏觀調控(kong)的(de)(de)需要，通過制定“綠(lv)色發(fa)展電(dian)(dian)價(jia)(jia)(jia)”、“差(cha)別電(dian)(dian)價(jia)(jia)(jia)”和“階梯電(dian)(dian)價(jia)(jia)(jia)”等(deng)政策，人為(wei)(wei)地(di)(di)(di)對不同用戶(hu)征收(shou)不同電(dian)(dian)價(jia)(jia)(jia)；為(wei)(wei)了(le)招商引資(zi)來(lai)拉動地(di)(di)(di)方(fang)經濟發(fa)展，各地(di)(di)(di)競相打造“電(dian)(dian)價(jia)(jia)(jia)洼地(di)(di)(di)”，對部分用戶(hu)承諾(nuo)超低電(dian)(dian)價(jia)(jia)(jia)；為(wei)(wei)了(le)推動“棄水”消納、“煤改電(dian)(dian)”等(deng)，部分地(di)(di)(di)區不斷出臺各種“優惠”、“減免”、“階段(duan)性降低電(dian)(dian)價(jia)(jia)(jia)”措(cuo)施，人為(wei)(wei)扭曲電(dian)(dian)價(jia)(jia)(jia)。

三、從電價外電力成本看本輪電改

“獲得電力成本”顯著降低

除按(an)照電價向電網(wang)企(qi)業(ye)支付電費(fei)以外，工商(shang)業(ye)企(qi)業(ye)往往還需要自行投資建設(she)外線接電工程及相關設(she)施。這些(xie)設(she)施的成本(ben)（如(ru)折(zhe)舊和運維費(fei)用）在(zai)電價之外，但同樣是企(qi)業(ye)需要承擔的電力成本(ben)，有(you)時占的比重還很高。

如果上述設(she)施由電(dian)網(wang)企業投資(zi)建設(she)，用(yong)戶只需在(zai)辦理接(jie)電(dian)（業擴）時向電(dian)網(wang)企業繳納費用(yong)，這筆費用(yong)就是(shi)“獲得電(dian)力成(cheng)本(ben)”。

為了推動營(ying)商環境(jing)的(de)改善，“獲得電力成本(ben)”近(jin)年來逐漸(jian)受到(dao)重視(shi)。隨著本(ben)輪電力體制改革的(de)推進，部分電網企(qi)業開始將投資界面延伸到(dao)用(yong)戶(hu)規劃用(yong)電的(de)紅(hong)線(xian)甚至(zhi)紅(hong)線(xian)以內，電力用(yong)戶(hu)“獲得電力成本(ben)”顯(xian)著降(jiang)低(di)。

硬性降低“獲得電力成本”正在造成新的交叉補貼

為了提高“獲得(de)電力”指標的評分，部分地區硬性降低“獲得(de)電力成本”，甚至直接降到0。

由于輸配電(dian)是管制性業務，如果(guo)用(yong)(yong)戶(hu)(hu)不(bu)自(zi)行投資建設其接(jie)電(dian)設施，也不(bu)足額承擔其“獲得電(dian)力成(cheng)本”，相關成(cheng)本都會(hui)被計入電(dian)網企業的輸配電(dian)成(cheng)本，最(zui)終(zhong)由全體電(dian)力用(yong)(yong)戶(hu)(hu)共同分(fen)攤，最(zui)終(zhong)造成(cheng)新的交叉(cha)補貼。

四、不忘初心電改再出發

電改不能單純追求降電價

降低(di)電(dian)價水平，特別是工商(shang)業電(dian)價水平，是本輪電(dian)改(gai)的(de)(de)初心之一(yi)。但電(dian)價的(de)(de)降低(di)應該是新的(de)(de)電(dian)價形成(cheng)機制建立以后的(de)(de)自(zi)然結(jie)果(guo)，而不能是直接手段。如果(guo)目標單純是降低(di)電(dian)價，那只(zhi)需要(yao)一(yi)份(fen)行政命令就夠了(le)，根本不需要(yao)花費多(duo)年的(de)(de)時間(jian)和大量的(de)(de)人力物力來推動電(dian)力體制改(gai)革。

實(shi)際(ji)上，隨(sui)著新能源(yuan)發電(dian)(dian)滲透率上升，調峰燃氣(qi)機(ji)(ji)組、儲(chu)能等設(she)施的(de)裝機(ji)(ji)規模必然上升，其昂(ang)貴的(de)發電(dian)(dian)和(he)備用成(cheng)本將對我國的(de)電(dian)(dian)價水平帶來(lai)非常現實(shi)的(de)上漲壓力(li)。

我(wo)們應(ying)正(zheng)(zheng)確看(kan)待電(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)(de)浮動(dong)(dong)(dong)，避(bi)免一(yi)些因擔心電(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)(de)正(zheng)(zheng)常浮動(dong)(dong)(dong)而(er)干預電(dian)(dian)(dian)價(jia)(jia)(jia)或電(dian)(dian)(dian)價(jia)(jia)(jia)形成(cheng)機制的(de)(de)(de)(de)做法，例(li)如：避(bi)免為電(dian)(dian)(dian)力(li)(li)市(shi)場交(jiao)易(yi)設(she)置(zhi)過(guo)低的(de)(de)(de)(de)限價(jia)(jia)(jia)。既然(ran)電(dian)(dian)(dian)價(jia)(jia)(jia)要(yao)由(you)市(shi)場決定(ding)(ding)(ding)，那(nei)么隨著市(shi)場中供需的(de)(de)(de)(de)變化，電(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)(de)浮動(dong)(dong)(dong)就是(shi)正(zheng)(zheng)常的(de)(de)(de)(de)、必然(ran)的(de)(de)(de)(de)。電(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)(de)短(duan)時間(jian)上升，甚至超(chao)過(guo)原(yuan)來的(de)(de)(de)(de)電(dian)(dian)(dian)價(jia)(jia)(jia)水平(ping)，都正(zheng)(zheng)是(shi)電(dian)(dian)(dian)力(li)(li)商(shang)品(pin)屬性(xing)的(de)(de)(de)(de)表現。高電(dian)(dian)(dian)價(jia)(jia)(jia)同時也是(shi)一(yi)種經濟(ji)信號，能引導投資進入，從(cong)而(er)在長(chang)期(qi)(qi)上保(bao)持電(dian)(dian)(dian)價(jia)(jia)(jia)水平(ping)的(de)(de)(de)(de)穩定(ding)(ding)(ding)；避(bi)免原(yuan)有目錄電(dian)(dian)(dian)價(jia)(jia)(jia)對(dui)電(dian)(dian)(dian)價(jia)(jia)(jia)改(gai)革的(de)(de)(de)(de)負面影響。在經營性(xing)用(yong)電(dian)(dian)(dian)全部進入市(shi)場或者(zhe)參(can)與(yu)“基準價(jia)(jia)(jia)+浮動(dong)(dong)(dong)”機制后(hou)，應(ying)盡快徹(che)底(di)取消工(gong)商(shang)業目錄電(dian)(dian)(dian)價(jia)(jia)(jia)，結(jie)束電(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)(de)雙(shuang)軌制；對(dui)于不(bu)參(can)與(yu)或者(zhe)退出電(dian)(dian)(dian)力(li)(li)市(shi)場的(de)(de)(de)(de)用(yong)戶，應(ying)適用(yong)保(bao)底(di)供電(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)（保(bao)底(di)供電(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)比(bi)新價(jia)(jia)(jia)格(ge)機制形成(cheng)的(de)(de)(de)(de)電(dian)(dian)(dian)價(jia)(jia)(jia)高）；避(bi)免隨意(yi)調整(zheng)電(dian)(dian)(dian)價(jia)(jia)(jia)。如果在特(te)定(ding)(ding)(ding)時期(qi)(qi)、特(te)定(ding)(ding)(ding)區域、特(te)定(ding)(ding)(ding)行業或者(zhe)特(te)定(ding)(ding)(ding)用(yong)戶群體需要(yao)補(bu)貼(tie)，我(wo)們應(ying)該(gai)做的(de)(de)(de)(de)是(shi)直接補(bu)貼(tie)，而(er)不(bu)是(shi)扭(niu)曲電(dian)(dian)(dian)價(jia)(jia)(jia)；如果的(de)(de)(de)(de)確需要(yao)通過(guo)電(dian)(dian)(dian)費這個繳(jiao)費渠道來補(bu)貼(tie)，也應(ying)該(gai)在電(dian)(dian)(dian)費單上明(ming)確、單獨列出；避(bi)免因短(duan)期(qi)(qi)降電(dian)(dian)(dian)價(jia)(jia)(jia)需求影響長(chang)期(qi)(qi)監(jian)(jian)管機制的(de)(de)(de)(de)嚴肅(su)性(xing)。由(you)于當前(qian)面臨嚴峻的(de)(de)(de)(de)降電(dian)(dian)(dian)價(jia)(jia)(jia)壓力(li)(li)，當前(qian)版本的(de)(de)(de)(de)《輸(shu)配(pei)電(dian)(dian)(dian)定(ding)(ding)(ding)價(jia)(jia)(jia)成(cheng)本監(jian)(jian)審辦法》和《省級電(dian)(dian)(dian)網輸(shu)配(pei)電(dian)(dian)(dian)價(jia)(jia)(jia)定(ding)(ding)(ding)價(jia)(jia)(jia)辦法》中存在一(yi)些短(duan)期(qi)(qi)看(kan)能降電(dian)(dian)(dian)價(jia)(jia)(jia)，但長(chang)期(qi)(qi)看(kan)副(fu)作用(yong)更多的(de)(de)(de)(de)規定(ding)(ding)(ding)。

理順電價形成機制才是本輪電改的核心目標

新的(de)電價形成機制已經建(jian)立，但遠(yuan)未(wei)理順，因為交叉補貼(tie)這個(ge)“老(lao)大(da)難(nan)”問題(ti)還依然存在。9號文(wen)部署的(de)28項(xiang)重點工作中(zhong)第3項(xiang)就(jiu)是“妥(tuo)善處理電價交叉補貼(tie)”，這也從側面反映了交叉補貼(tie)問題(ti)的(de)重要程(cheng)度(du)和困難(nan)程(cheng)度(du)。

對于當(dang)前(qian)存在的(de)比(bi)較嚴(yan)重的(de)兩(liang)類交叉補貼，我(wo)們應分別妥(tuo)善處(chu)理：

一是大工業用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)補貼(tie)居(ju)(ju)民(min)(min)和農業用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)。處理這類(lei)(lei)交叉補貼(tie)的(de)關(guan)鍵(jian)(jian)是適當提高(gao)居(ju)(ju)民(min)(min)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)，因(yin)為我國的(de)居(ju)(ju)民(min)(min)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)不僅(jin)低于成(cheng)本(ben)，也遠(yuan)低于大多數國家(jia)。為了(le)減少(shao)對低收入人群的(de)影響，提高(gao)居(ju)(ju)民(min)(min)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格(ge)可以(yi)采用(yong)(yong)(yong)(yong)拉大階梯電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)的(de)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)差等方式(shi)；二是高(gao)電(dian)(dian)(dian)(dian)壓(ya)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)補貼(tie)低電(dian)(dian)(dian)(dian)壓(ya)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)。處理這類(lei)(lei)交叉補貼(tie)的(de)關(guan)鍵(jian)(jian)是不再要求(qiu)輸配(pei)(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)與原目錄電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)“銜接”，輸配(pei)(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)依據(ju)各(ge)電(dian)(dian)(dian)(dian)壓(ya)等級的(de)實際供(gong)電(dian)(dian)(dian)(dian)成(cheng)本(ben)核(he)定(ding)。如(ru)果由于長期電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)扭曲(qu)導致電(dian)(dian)(dian)(dian)網企業中(zhong)低壓(ya)配(pei)(pei)電(dian)(dian)(dian)(dian)資產過(guo)少(shao)，核(he)定(ding)輸配(pei)(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)時可以(yi)采用(yong)(yong)(yong)(yong)“典型電(dian)(dian)(dian)(dian)網模型”等方法，逐步將扭曲(qu)的(de)輸配(pei)(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)回歸(gui)到(dao)正常水平。

新的電(dian)價(jia)形成機制(zhi)難以(yi)理順的另外一個因素，是原有目錄(lu)電(dian)價(jia)的干擾。只有徹底廢(fei)止(zhi)工商(shang)業(ye)用電(dian)的目錄(lu)電(dian)價(jia)，各界翹(qiao)首以(yi)盼(pan)的分時輸配電(dian)價(jia)、可(ke)選擇的輸配電(dian)價(jia)套餐、乃至(zhi)三(san)部制(zhi)輸配電(dian)價(jia)等創新價(jia)格(ge)機制(zhi)才(cai)可(ke)能出現，售電(dian)側(ce)市場才(cai)可(ke)能真(zhen)正形成。

“管住中間”是本輪電改是否成功的關鍵

發達國家的電力體(ti)制改革(ge)經驗表明，輸配電環節實現公平開放且受(shou)到嚴格(ge)監(jian)管(guan)，是有(you)效的電力市場(chang)得以形成的前提(ti)。也就是說，只(zhi)有(you)“管(guan)住了(le)中間”，“放開兩(liang)頭”才有(you)實際意義。

然而，從這五年(nian)來(lai)的(de)實(shi)際情(qing)況看，“管住(zhu)中(zhong)間”做得明顯(xian)不(bu)夠，電(dian)(dian)(dian)網企業往往既是(shi)運(yun)(yun)動員(yuan)又是(shi)裁判(pan)員(yuan)，電(dian)(dian)(dian)力交(jiao)易中(zhong)心的(de)電(dian)(dian)(dian)力交(jiao)易結果經常(chang)得不(bu)到執行(xing)。時隔五年(nian)，國家發改(gai)委(wei)、國家能源局還在(zai)印發《關于推進(jin)電(dian)(dian)(dian)力交(jiao)易機構獨立(li)規范運(yun)(yun)行(xing)的(de)實(shi)施意見》的(de)通(tong)知（發改(gai)體(ti)改(gai)〔2020〕234號），目(mu)標是(shi)在(zai)今年(nian)內(nei)實(shi)現電(dian)(dian)(dian)力交(jiao)易機構的(de)獨立(li)規范運(yun)(yun)行(xing)。“管住(zhu)中(zhong)間”的(de)難度(du)，由此可(ke)見一(yi)斑。

“管住中間(jian)(jian)”，除了支撐(cheng)“放(fang)開(kai)兩頭”之外(wai)，同樣重要的(de)(de)是通過(guo)對電(dian)(dian)(dian)網企業的(de)(de)有效監管來降低輸(shu)配電(dian)(dian)(dian)價。實際上，如果要繼(ji)續挖掘(jue)降電(dian)(dian)(dian)價的(de)(de)潛力，發(fa)電(dian)(dian)(dian)環(huan)節讓利已經難以為(wei)繼(ji)，而輸(shu)配電(dian)(dian)(dian)環(huan)節的(de)(de)效率還有提(ti)升(sheng)空間(jian)(jian)。

加強對輸配(pei)電(dian)環節的監管，應從以下幾個方面(mian)著手：

一(yi)是(shi)分開監管輸(shu)電(dian)業務(wu)和配(pei)電(dian)業務(wu)。電(dian)網(wang)企業同時(shi)經(jing)營(ying)輸(shu)電(dian)業務(wu)和配(pei)電(dian)業務(wu)沒有(you)(you)問(wen)題，但(dan)由于(yu)輸(shu)電(dian)業務(wu)和配(pei)電(dian)業務(wu)的性質(zhi)非常不同，對(dui)(dui)應的監管方式(shi)（甚(shen)至(zhi)監管機構(gou)）都會不同，因此(ci)一(yi)定要將(jiang)這兩項業務(wu)分開；二是(shi)推行(xing)特(te)許經(jing)營(ying)制(zhi)(zhi)度(du)。不論(lun)是(shi)對(dui)(dui)于(yu)增量配(pei)電(dian)業務(wu)，還是(shi)存(cun)量的配(pei)電(dian)業務(wu)，都應該明確電(dian)網(wang)設(she)施(shi)的產(chan)權(quan)，并通過特(te)許經(jing)營(ying)合(he)同來(lai)明確經(jing)營(ying)期限、經(jing)營(ying)者責任、退出機制(zhi)(zhi)等，否則有(you)(you)效的監管無從談(tan)起；三是(shi)加強監管能力建(jian)設(she)。

在(zai)原(yuan)電監(jian)(jian)(jian)會撤銷后，我(wo)國輸配電業務的(de)監(jian)(jian)(jian)管(guan)只能分散到了能源(yuan)、價(jia)格(ge)、經信(xin)、能見局（辦）等(deng)多個機構，且(qie)存在(zai)政(zheng)監(jian)(jian)(jian)不分、監(jian)(jian)(jian)管(guan)權(quan)(quan)力交叉、監(jian)(jian)(jian)管(guan)信(xin)息孤島等(deng)體制問題。要實現對輸配電業務的(de)有(you)效(xiao)監(jian)(jian)(jian)管(guan)，最好是建(jian)立(li)(li)有(you)足夠權(quan)(quan)限、獨立(li)(li)、綜(zong)合的(de)監(jian)(jian)(jian)管(guan)機構，還應建(jian)立(li)(li)公眾參與監(jian)(jian)(jian)管(guan)的(de)機制。