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近期，國家能(neng)源局(ju)啟(qi)動了《供電營業(ye)區劃分及管(guan)(guan)理辦法(fa)》修訂工作。究竟如(ru)何(he)看待供電營業(ye)區制(zhi)度？如(ru)何(he)定(ding)義供電營業(ye)區？按什么原則劃分和管(guan)(guan)理，又(you)該由誰(shui)來(lai)劃分和管(guan)(guan)理？隨(sui)著新(xin)一輪電力體(ti)(ti)制(zhi)改革的深入推(tui)進(jin)，尤(you)其(qi)是在“管(guan)(guan)住中間、放(fang)開兩頭”的體(ti)(ti)制(zhi)架(jia)構(gou)下，這一系列問題亟待按照實事求是的精(jing)神(shen)進(jin)行與時俱進(jin)的探討，不能(neng)再簡單地蕭規曹隨(sui)。

供電業務需要新的內涵

《電(dian)力(li)法》1996年(nian)(nian)實施起就確(que)立了供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)制(zhi)度(du)。供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)制(zhi)度(du)的(de)核心是“一(yi)個(ge)供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)內只設立一(yi)個(ge)供(gong)電(dian)營(ying)(ying)業(ye)(ye)機(ji)構”，這是電(dian)網的(de)自(zi)然(ran)壟斷(duan)屬性(xing)決定的(de)。雖然(ran)經歷了2002年(nian)(nian)以“廠網分(fen)開(kai)”為(wei)特(te)征的(de)電(dian)力(li)體制(zhi)改革，以及2015年(nian)(nian)啟動的(de)以“管住中(zhong)間、放(fang)開(kai)兩頭”為(wei)特(te)征的(de)新一(yi)輪電(dian)力(li)體制(zhi)改革，《電(dian)力(li)法》在2009年(nian)(nian)、2015年(nian)(nian)和2018年(nian)(nian)也(ye)有過三次修訂，其中(zhong)后兩次修訂都涉(she)及供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)制(zhi)度(du)，但供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)制(zhi)度(du)并未出現根本性(xing)調整。應該說，實踐證明(ming)供(gong)電(dian)營(ying)(ying)業(ye)(ye)區(qu)(qu)制(zhi)度(du)是適合我國國情和電(dian)力(li)行業(ye)(ye)發展需要的(de)。

不論(lun)是《電(dian)(dian)力法(fa)》，還是《電(dian)(dian)力供(gong)應(ying)與使用條例(li)》以(yi)及《供(gong)電(dian)(dian)營業(ye)(ye)(ye)區劃(hua)分(fen)及管(guan)理辦(ban)法(fa)》，我(wo)國電(dian)(dian)力法(fa)規一個普(pu)遍的(de)特點就是條文中對名詞(ci)缺乏明晰的(de)定義——究(jiu)竟什么是供(gong)電(dian)(dian)？發電(dian)(dian)業(ye)(ye)(ye)務(wu)在不在內？它包含輸配業(ye)(ye)(ye)務(wu)還是只包含配電(dian)(dian)業(ye)(ye)(ye)務(wu)？是否包含售電(dian)(dian)業(ye)(ye)(ye)務(wu)？

傳統的(de)(de)“供(gong)(gong)電(dian)(dian)(dian)”是指將電(dian)(dian)(dian)能通過輸配(pei)電(dian)(dian)(dian)裝置安全、可靠(kao)、連(lian)續、合格地(di)銷(xiao)售(shou)(shou)給廣大電(dian)(dian)(dian)力(li)(li)客(ke)戶，滿足廣大客(ke)戶經濟建(jian)(jian)設(she)和(he)(he)生活(huo)用(yong)電(dian)(dian)(dian)的(de)(de)需要(yao)。充分(fen)(fen)考慮《電(dian)(dian)(dian)力(li)(li)法》1995年制(zhi)定時的(de)(de)電(dian)(dian)(dian)力(li)(li)行業發展狀(zhuang)況和(he)(he)體(ti)制(zhi)背(bei)景(jing)，第四章“電(dian)(dian)(dian)力(li)(li)供(gong)(gong)應與(yu)使用(yong)”中的(de)(de)“供(gong)(gong)電(dian)(dian)(dian)”很(hen)明顯是指當時背(bei)景(jing)下配(pei)電(dian)(dian)(dian)企業的(de)(de)經營行為(wei)，既包含(han)輸電(dian)(dian)(dian)、配(pei)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，也涉及售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)。之所以售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)未明顯表述，是在當時電(dian)(dian)(dian)力(li)(li)行業壟斷(duan)一(yi)體(ti)化的(de)(de)產業結構(gou)背(bei)景(jing)下，售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)還是一(yi)個隱(yin)性環節，并沒有被(bei)認識到可以單獨存在。但在2015年“9號文”頒布(bu)后，按(an)照“管住中間(jian)、放開(kai)兩頭”的(de)(de)體(ti)制(zhi)架構(gou)，很(hen)顯然(ran)售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)和(he)(he)配(pei)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)已被(bei)區分(fen)(fen)開(kai)，所以，目前就(jiu)有必(bi)要(yao)重新定義供(gong)(gong)電(dian)(dian)(dian)的(de)(de)內涵。根據(ju)“9號文”精神，建(jian)(jian)議(yi)明確(que)區分(fen)(fen)配(pei)電(dian)(dian)(dian)和(he)(he)售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，將供(gong)(gong)電(dian)(dian)(dian)定義為(wei)“在供(gong)(gong)電(dian)(dian)(dian)營業區范圍內的(de)(de)配(pei)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，承擔普遍(bian)服(fu)務(wu)(wu)(wu)(wu)責任以及未參與(yu)市場(chang)化購電(dian)(dian)(dian)用(yong)戶的(de)(de)售(shou)(shou)電(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)”。

另外，2018年修訂的《電(dian)力法(fa)》沒(mei)有了跨(kua)(kua)省(sheng)和(he)(he)非(fei)跨(kua)(kua)省(sheng)供(gong)(gong)電(dian)營業(ye)區的區別表(biao)述，但并不能以(yi)此判(pan)斷(duan)它取消了跨(kua)(kua)省(sheng)的供(gong)(gong)電(dian)營業(ye)區。因為(wei)，如(ru)果供(gong)(gong)電(dian)業(ye)務明確(que)定義為(wei)“配電(dian)”及其相關的普遍服務和(he)(he)非(fei)市(shi)場(chang)化售電(dian)，那么就沒(mei)有再強調跨(kua)(kua)省(sheng)供(gong)(gong)電(dian)營業(ye)區的必要性了。

共用和專用供電設施應嚴格區分

供(gong)(gong)(gong)電(dian)(dian)(dian)營(ying)(ying)業(ye)區(qu)制度的(de)核(he)心是供(gong)(gong)(gong)電(dian)(dian)(dian)業(ye)務專營(ying)(ying)屬性，《電(dian)(dian)(dian)力(li)法》第二十五條明確“一(yi)(yi)個(ge)供(gong)(gong)(gong)電(dian)(dian)(dian)營(ying)(ying)業(ye)區(qu)內(nei)只(zhi)設立一(yi)(yi)個(ge)供(gong)(gong)(gong)電(dian)(dian)(dian)營(ying)(ying)業(ye)機構”，《供(gong)(gong)(gong)電(dian)(dian)(dian)營(ying)(ying)業(ye)區(qu)劃分及管(guan)理(li)辦法》延續了這一(yi)(yi)表述。但事實(shi)上，一(yi)(yi)個(ge)供(gong)(gong)(gong)電(dian)(dian)(dian)營(ying)(ying)業(ye)區(qu)內(nei)或(huo)多(duo)或(huo)少存(cun)在工業(ye)園區(qu)或(huo)者商業(ye)綜合(he)體(ti)等(deng)諸多(duo)方式的(de)轉供(gong)(gong)(gong)電(dian)(dian)(dian)情況，這些(xie)轉供(gong)(gong)(gong)電(dian)(dian)(dian)主(zhu)體(ti)事實(shi)上也在履行供(gong)(gong)(gong)電(dian)(dian)(dian)功能。

近年來，國(guo)家出(chu)臺(tai)文件(jian)要(yao)求規范(fan)轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)，但供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)企業不(bu)可(ke)能收購或者以(yi)其(qi)他形(xing)式獲(huo)取這部分(fen)轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)資產，轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)行為(wei)依然會(hui)存(cun)在(zai)。僅依靠價格(ge)主(zhu)管部門治(zhi)理轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)解決不(bu)了根(gen)本(ben)問題。堵不(bu)如疏，要(yao)從根(gen)本(ben)上解決轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)問題，首先須(xu)回答(da)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)企業是否還要(yao)承擔(dan)“名義上應(ying)該承擔(dan)但實際(ji)上不(bu)可(ke)能兌現(xian)”的(de)(de)(de)責任，抑或是理性(xing)(xing)地區分(fen)實現(xian)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)功能供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)設施(shi)的(de)(de)(de)共(gong)用(yong)(yong)(yong)或專(zhuan)用(yong)(yong)(yong)屬(shu)性(xing)(xing)——供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)企業只做(zuo)共(gong)用(yong)(yong)(yong)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)設施(shi)的(de)(de)(de)投資經營(ying)(ying)，而包括轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)在(zai)內的(de)(de)(de)用(yong)(yong)(yong)電(dian)(dian)(dian)側專(zhuan)用(yong)(yong)(yong)供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)設施(shi)則按照“誰使(shi)用(yong)(yong)(yong)、誰投資”的(de)(de)(de)原(yuan)則向市場開放，通(tong)過合理回報和價格(ge)上限的(de)(de)(de)原(yuan)則，讓轉供(gong)(gong)(gong)(gong)電(dian)(dian)(dian)從灰色領域(yu)轉變成為(wei)合規公開經營(ying)(ying)。

供(gong)(gong)電(dian)(dian)企(qi)業(ye)(ye)只(zhi)做共(gong)用(yong)(yong)功(gong)能(neng)的供(gong)(gong)電(dian)(dian)業(ye)(ye)務(wu)，事實(shi)上也是對(dui)壟(long)斷(duan)企(qi)業(ye)(ye)經營范圍的一次法規(gui)性(xing)確認，對(dui)于(yu)減輕供(gong)(gong)電(dian)(dian)企(qi)業(ye)(ye)負擔，提高供(gong)(gong)電(dian)(dian)企(qi)業(ye)(ye)服務(wu)，加強(qiang)供(gong)(gong)電(dian)(dian)企(qi)業(ye)(ye)監管都具有積(ji)極意義。壟(long)斷(duan)約束一小步(bu)，市場(chang)就(jiu)發(fa)(fa)展一大步(bu)。此舉也將極大激發(fa)(fa)社會資(zi)(zi)本(ben)投(tou)(tou)資(zi)(zi)專用(yong)(yong)配(pei)電(dian)(dian)業(ye)(ye)務(wu)的積(ji)極性(xing)，有利(li)于(yu)放開用(yong)(yong)電(dian)(dian)側投(tou)(tou)資(zi)(zi)和服務(wu)市場(chang)，推動實(shi)現“放開兩頭”。

無證供電的監管空白要盡快彌補

現有的《供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)(ye)區劃分(fen)及管(guan)理(li)辦法》可(ke)以(yi)滿(man)足主動申報供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)(ye)區并取(qu)得(de)《電(dian)(dian)(dian)(dian)(dian)力業(ye)(ye)務許(xu)可(ke)證》情況的監(jian)管(guan)，但(dan)不能解決經營(ying)(ying)者未(wei)主動申請供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)(ye)區或取(qu)得(de)《電(dian)(dian)(dian)(dian)(dian)力業(ye)(ye)務許(xu)可(ke)證》且未(wei)能履(lv)行合格(ge)供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)責任的處(chu)置(zhi)等情況。未(wei)取(qu)得(de)電(dian)(dian)(dian)(dian)(dian)力業(ye)(ye)務許(xu)可(ke)證的無證供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)情況，如農(nong)村(cun)小水電(dian)(dian)(dian)(dian)(dian)自(zi)供(gong)(gong)區等歷(li)史遺留(liu)問題，亟(ji)需(xu)在(zai)此次(ci)修訂《供(gong)(gong)電(dian)(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)(ye)區劃分(fen)及管(guan)理(li)辦法》中予以(yi)解決。

對(dui)(dui)于(yu)因歷(li)史原因，未(wei)(wei)申(shen)請辦理(li)或(huo)未(wei)(wei)取得(de)(de)《電(dian)(dian)(dian)力業(ye)(ye)務(wu)許可(ke)證(zheng)》而事實(shi)上(shang)供(gong)(gong)電(dian)(dian)(dian)的(de)情(qing)況，修訂稿中應明確要(yao)求(qiu)其主動申(shen)請供(gong)(gong)電(dian)(dian)(dian)營業(ye)(ye)區劃分，并辦理(li)《電(dian)(dian)(dian)力業(ye)(ye)務(wu)許可(ke)證(zheng)》。同時(shi)(shi)，應彌補監(jian)(jian)管(guan)(guan)空白，建議(yi)國(guo)家(jia)(jia)能(neng)源(yuan)局派出(chu)監(jian)(jian)管(guan)(guan)機構加強對(dui)(dui)未(wei)(wei)取得(de)(de)《電(dian)(dian)(dian)力業(ye)(ye)務(wu)許可(ke)證(zheng)》但事實(shi)供(gong)(gong)電(dian)(dian)(dian)情(qing)況的(de)有效(xiao)監(jian)(jian)管(guan)(guan)，通(tong)過加強無證(zheng)供(gong)(gong)電(dian)(dian)(dian)和不(bu)合格供(gong)(gong)電(dian)(dian)(dian)的(de)監(jian)(jian)督，要(yao)求(qiu)其在規(gui)定(ding)時(shi)(shi)間內進(jin)行整(zheng)改，對(dui)(dui)在規(gui)定(ding)時(shi)(shi)間內不(bu)能(neng)實(shi)現合格供(gong)(gong)電(dian)(dian)(dian)的(de)主體，應完善(shan)監(jian)(jian)管(guan)(guan)規(gui)則，勒令其縮(suo)減(jian)供(gong)(gong)電(dian)(dian)(dian)營業(ye)(ye)區或(huo)者退出(chu)。建議(yi)國(guo)家(jia)(jia)能(neng)源(yuan)局進(jin)一步研究明確經(jing)營者的(de)申(shen)請時(shi)(shi)限(xian)和監(jian)(jian)管(guan)(guan)部門的(de)工作時(shi)(shi)限(xian)，包括以(yi)上(shang)情(qing)況縮(suo)減(jian)供(gong)(gong)電(dian)(dian)(dian)營業(ye)(ye)區后(hou)資(zi)產處(chu)理(li)等規(gui)則。

管理權限調整不能違背“放管服”精神

2018年修訂(ding)前(qian)的(de)(de)《電(dian)(dian)力法(fa)》第(di)二十五條(tiao)明(ming)確，各層(ceng)級(ji)供電(dian)(dian)營(ying)業(ye)(ye)區(qu)(qu)經審查批(pi)準后(hou)，由相應(ying)層(ceng)級(ji)的(de)(de)電(dian)(dian)力管理(li)部(bu)門(men)發給(gei)《供電(dian)(dian)營(ying)業(ye)(ye)許(xu)可(ke)證(zheng)》。2018年修訂(ding)后(hou)的(de)(de)《電(dian)(dian)力法(fa)》第(di)二十五條(tiao)對(dui)此表(biao)述(shu)依然不變(bian)，“……電(dian)(dian)力管理(li)部(bu)門(men)依據職責和(he)管理(li)權限，會同同級(ji)有關(guan)部(bu)門(men)審查批(pi)準后(hou)，發給(gei)《電(dian)(dian)力業(ye)(ye)務(wu)許(xu)可(ke)證(zheng)》”。1996年原電(dian)(dian)力工(gong)業(ye)(ye)部(bu)頒布《供電(dian)(dian)營(ying)業(ye)(ye)區(qu)(qu)劃分及管理(li)辦法(fa)》也(ye)遵(zun)循這個原則，但2019年8月(yue)《供電(dian)(dian)營(ying)業(ye)(ye)區(qu)(qu)劃分及管理(li)辦法(fa)（征求意見稿(gao)）》第(di)九條(tiao)中的(de)(de)表(biao)述(shu)卻發生明(ming)顯變(bian)化——“取得供電(dian)(dian)營(ying)業(ye)(ye)區(qu)(qu)劃分意見的(de)(de)企業(ye)(ye)應(ying)按照(zhao)有關(guan)規(gui)定向國家能(neng)源局派出機構申請《電(dian)(dian)力業(ye)(ye)務(wu)許(xu)可(ke)證(zheng)》。供電(dian)(dian)營(ying)業(ye)(ye)區(qu)(qu)在(zai)《電(dian)(dian)力業(ye)(ye)務(wu)許(xu)可(ke)證(zheng)》中載明(ming)后(hou)方可(ke)生效。”

換言(yan)之，從《供電(dian)(dian)(dian)營業許(xu)(xu)可(ke)證(zheng)》調整(zheng)為《電(dian)(dian)(dian)力(li)業務許(xu)(xu)可(ke)證(zheng)》，實質上(shang)是要改變供電(dian)(dian)(dian)營業區的管(guan)理權限，即從省地(di)方政府電(dian)(dian)(dian)力(li)管(guan)理部門調整(zheng)為國(guo)家能源局派出機構。但很(hen)明顯，這與《電(dian)(dian)(dian)力(li)法》是不一致的，也與行(xing)政審批和事(shi)后監管(guan)分離的原則(ze)不符，無形中增加(jia)了(le)供電(dian)(dian)(dian)企業申請許(xu)(xu)可(ke)的環(huan)節，與國(guo)務院“放管(guan)服”的精神不符。這項行(xing)政許(xu)(xu)可(ke)權力(li)在中央(yang)和地(di)方之間的調整(zheng)，僅僅通過《供電(dian)(dian)(dian)營業區劃分及管(guan)理辦法》修(xiu)訂這個層級(ji)來操作是不妥的。