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長(chang)期(qi)以來，發(fa)用電(dian)計(ji)劃(hua)(hua)作(zuo)(zuo)為(wei)年度電(dian)力(li)(li)電(dian)量(liang)平衡方案，有力(li)(li)保障了電(dian)力(li)(li)供(gong)(gong)需平衡、電(dian)網安全(quan)穩(wen)定(ding)運(yun)行，特別是(shi)(shi)在電(dian)力(li)(li)供(gong)(gong)應緊張時期(qi)發(fa)揮了重(zhong)要作(zuo)(zuo)用。然而(er)，隨著我國電(dian)力(li)(li)供(gong)(gong)需形勢變(bian)化，計(ji)劃(hua)(hua)模式下的(de)電(dian)力(li)(li)生產(chan)管(guan)理(li)(li)已經不能完(wan)全(quan)適(shi)應供(gong)(gong)求關系變(bian)化和(he)(he)市場化改(gai)革(ge)的(de)新要求。推進發(fa)用電(dian)計(ji)劃(hua)(hua)改(gai)革(ge)是(shi)(shi)新一輪電(dian)力(li)(li)體(ti)(ti)制(zhi)改(gai)革(ge)的(de)重(zhong)點任務之(zhi)一，是(shi)(shi)構建有效競爭的(de)市場結構和(he)(he)市場體(ti)(ti)系的(de)必由(you)之(zhi)路(lu)，是(shi)(shi)電(dian)力(li)(li)行業(ye)管(guan)理(li)(li)手段由(you)“計(ji)劃(hua)(hua)”向“市場”轉變(bian)的(de)關鍵一步(bu)。

2019年(nian)，國(guo)家發(fa)展(zhan)改革委正(zheng)式下發(fa)《關于全面(mian)放(fang)開經(jing)營(ying)性(xing)(xing)電(dian)力(li)用(yong)戶發(fa)用(yong)電(dian)計劃(hua)(hua)的通(tong)知》（簡(jian)稱通(tong)知，發(fa)改運行〔2019〕1105號(hao)），要求除(chu)居(ju)民、農業、重(zhong)要公(gong)用(yong)事業和公(gong)益性(xing)(xing)服務等行業電(dian)力(li)用(yong)戶以及電(dian)力(li)生產供(gong)應所必(bi)需的廠用(yong)電(dian)和線損之外(wai)，經(jing)營(ying)性(xing)(xing)電(dian)力(li)用(yong)戶的發(fa)用(yong)電(dian)計劃(hua)(hua)原則(ze)上全部放(fang)開，我國(guo)發(fa)用(yong)電(dian)計劃(hua)(hua)改革邁(mai)出關鍵一步(bu)。

推進發用電計劃改革是我國新一輪電力體制改革的重點任務

《中(zhong)共中(zhong)央國務院關于(yu)進(jin)一步(bu)深(shen)化電(dian)(dian)(dian)力體制改(gai)革的(de)若干(gan)意見(jian)》（中(zhong)發(fa)〔2015〕9號(hao)(hao)）（簡稱“9號(hao)(hao)文(wen)(wen)”）提出，推進(jin)發(fa)用電(dian)(dian)(dian)計(ji)(ji)劃(hua)改(gai)革，有序放開(kai)公益性和調節性以外的(de)發(fa)用電(dian)(dian)(dian)計(ji)(ji)劃(hua)。為配合9號(hao)(hao)文(wen)(wen)的(de)實(shi)施，國家(jia)發(fa)展改(gai)革委于(yu)2015年11月底公布了六個配套文(wen)(wen)件，其(qi)中(zhong)，《關于(yu)有序放開(kai)用電(dian)(dian)(dian)計(ji)(ji)劃(hua)的(de)實(shi)施意見(jian)》進(jin)一步(bu)明確了發(fa)用電(dian)(dian)(dian)計(ji)(ji)劃(hua)改(gai)革的(de)總體思路，提出建立優先購(gou)電(dian)(dian)(dian)、發(fa)電(dian)(dian)(dian)制度(du)，并要求切實(shi)保障電(dian)(dian)(dian)力電(dian)(dian)(dian)量平衡(heng)、積極推進(jin)直(zhi)接交易、有序放開(kai)發(fa)用電(dian)(dian)(dian)計(ji)(ji)劃(hua)、因地(di)制宜組織(zhi)實(shi)施。

為進(jin)(jin)(jin)一(yi)(yi)步(bu)貫徹9號文精(jing)神，落實配(pei)套文件相關要求，2017年3月(yue)(yue)，國(guo)家發(fa)(fa)展改革委、國(guo)家能(neng)源局(ju)下發(fa)(fa)《關于有(you)序放開(kai)(kai)發(fa)(fa)用(yong)電(dian)計劃(hua)(hua)的通知(zhi)》，明確提(ti)出放開(kai)(kai)多類發(fa)(fa)用(yong)電(dian)計劃(hua)(hua)。2018年7月(yue)(yue)，國(guo)家發(fa)(fa)展改革委、國(guo)家能(neng)源局(ju)又(you)相繼印發(fa)(fa)《關于積極推(tui)進(jin)(jin)(jin)電(dian)力(li)(li)市場化交易(yi)進(jin)(jin)(jin)一(yi)(yi)步(bu)完(wan)善(shan)交易(yi)機制的通知(zhi)》，放開(kai)(kai)煤(mei)炭(tan)、鋼(gang)鐵(tie)、有(you)色、建材4個(ge)行業電(dian)力(li)(li)用(yong)戶發(fa)(fa)用(yong)電(dian)計劃(hua)(hua)，通過(guo)先行先試為全面放開(kai)(kai)發(fa)(fa)電(dian)用(yong)計劃(hua)(hua)作準備。

我國經營性發用電計劃全面放開

2019年，隨著電力市場化(hua)改革繼續深化(hua)，發(fa)(fa)用電計劃(hua)改革步伐(fa)加快(kuai)，全(quan)面放(fang)開經營性發(fa)(fa)用電計劃(hua)提上(shang)日程(cheng)。國家發(fa)(fa)展改革委政策(ce)研(yan)究室主任兼委新聞發(fa)(fa)言人袁達在(zai)4月18日召開的新聞發(fa)(fa)布(bu)會上(shang)明確表示(shi)“為(wei)進(jin)一步提高(gao)電力交易市場化(hua)程(cheng)度(du)，我們將會同有關(guan)部(bu)門，研(yan)究推(tui)進(jin)全(quan)面放(fang)開經營性發(fa)(fa)用電計劃(hua)有關(guan)工作。”

國家發(fa)展改(gai)革委、工業(ye)和信息化(hua)(hua)部(bu)、財(cai)政部(bu)、人(ren)民銀行四(si)部(bu)門在5月7日聯(lian)合發(fa)布的《關于做好(hao)2019年降成本重點工作的通知(zhi)》中(zhong)(zhong)明確要求(qiu)“提高(gao)電(dian)(dian)(dian)(dian)力交易市(shi)場(chang)化(hua)(hua)程度。深化(hua)(hua)電(dian)(dian)(dian)(dian)力市(shi)場(chang)化(hua)(hua)改(gai)革，放開所(suo)有經營性行業(ye)發(fa)用電(dian)(dian)(dian)(dian)計劃，鼓勵(li)售電(dian)(dian)(dian)(dian)公司代理中(zhong)(zhong)小用戶參(can)與電(dian)(dian)(dian)(dian)力市(shi)場(chang)化(hua)(hua)交易，鼓勵(li)清潔能源參(can)與交易。”

總體(ti)來看(kan)，《通知》就全面放開經營(ying)性電(dian)(dian)(dian)力用(yong)(yong)(yong)戶(hu)發用(yong)(yong)(yong)電(dian)(dian)(dian)計(ji)劃(hua)、支持中(zhong)小用(yong)(yong)(yong)戶(hu)參與市場(chang)化交易、健全全面放開經營(ying)性發用(yong)(yong)(yong)電(dian)(dian)(dian)計(ji)劃(hua)后的價格形成機制、切(qie)實(shi)做好公益性用(yong)(yong)(yong)電(dian)(dian)(dian)的供應保障工作、切(qie)實(shi)做好規(gui)劃(hua)內(nei)清潔電(dian)(dian)(dian)源(yuan)的發電(dian)(dian)(dian)保障工作及加強電(dian)(dian)(dian)力直接交易的履約監管進(jin)行了部署。具體(ti)來看(kan)：

首先，《通知》對發(fa)用電(dian)(dian)計(ji)劃擴(kuo)大范(fan)圍進行明確。根(gen)據《通知》，經營性電(dian)(dian)力用戶的(de)發(fa)用電(dian)(dian)計(ji)劃原則上全部放開。

其中(zhong)(zhong)，經營性(xing)電(dian)(dian)力(li)用(yong)(yong)(yong)(yong)戶(hu)中(zhong)(zhong)，不符合國(guo)家(jia)產業(ye)(ye)政(zheng)(zheng)策的(de)(de)電(dian)(dian)力(li)用(yong)(yong)(yong)(yong)戶(hu)暫(zan)不參(can)與市(shi)場(chang)化交(jiao)易，產品和(he)(he)工(gong)藝屬于(yu)《產業(ye)(ye)結構調(diao)整指(zhi)導目錄》中(zhong)(zhong)淘汰(tai)類和(he)(he)限(xian)制類的(de)(de)電(dian)(dian)力(li)用(yong)(yong)(yong)(yong)戶(hu)嚴格執(zhi)行現有(you)(you)差(cha)別電(dian)(dian)價(jia)政(zheng)(zheng)策；符合階梯(ti)電(dian)(dian)價(jia)政(zheng)(zheng)策的(de)(de)企(qi)業(ye)(ye)用(yong)(yong)(yong)(yong)戶(hu)在市(shi)場(chang)化電(dian)(dian)價(jia)的(de)(de)基礎上繼續執(zhi)行階梯(ti)電(dian)(dian)價(jia)政(zheng)(zheng)策；擁有(you)(you)燃煤自備(bei)電(dian)(dian)廠的(de)(de)企(qi)業(ye)(ye)按(an)照國(guo)家(jia)有(you)(you)關規定(ding)承擔政(zheng)(zheng)府性(xing)基金(jin)及附加(jia)、政(zheng)(zheng)策性(xing)交(jiao)叉(cha)補(bu)貼、普遍服務和(he)(he)社會責(ze)任，按(an)約定(ding)向電(dian)(dian)網企(qi)業(ye)(ye)支付系統(tong)備(bei)用(yong)(yong)(yong)(yong)費，取得電(dian)(dian)力(li)業(ye)(ye)務許(xu)可證(zheng)，達到能(neng)效、環保要求(qiu)，成為合格市(shi)場(chang)主體(ti)后(hou)，有(you)(you)序(xu)推(tui)進其自發自用(yong)(yong)(yong)(yong)以(yi)(yi)外電(dian)(dian)量按(an)交(jiao)易規則參(can)與交(jiao)易；對回收利用(yong)(yong)(yong)(yong)工(gong)業(ye)(ye)生產過程中(zhong)(zhong)產生可利用(yong)(yong)(yong)(yong)的(de)(de)熱能(neng)、壓(ya)差(cha)以(yi)(yi)及余氣(qi)等建設(she)相(xiang)(xiang)應規模的(de)(de)余熱、余壓(ya)、余氣(qi)自備(bei)電(dian)(dian)廠，繼續實施減免系統(tong)備(bei)用(yong)(yong)(yong)(yong)費和(he)(he)政(zheng)(zheng)策性(xing)交(jiao)叉(cha)補(bu)貼等相(xiang)(xiang)關支持政(zheng)(zheng)策。

其次，《通知》支(zhi)持中小用戶(hu)參與市(shi)場(chang)化(hua)交易(yi)，并對經(jing)營(ying)性(xing)電力用戶(hu)全(quan)面(mian)放(fang)開參與市(shi)場(chang)化(hua)交易(yi)的主要形(xing)式(shi)進行明(ming)確。《通知》指(zhi)出，經(jing)營(ying)性(xing)電力用戶(hu)全(quan)面(mian)放(fang)開參與市(shi)場(chang)化(hua)交易(yi)主要形(xing)式(shi)可以包括直接參與、由(you)售電公司代(dai)理(li)參與、其他各地根據實際(ji)情況研究明(ming)確的市(shi)場(chang)化(hua)方式(shi)等(deng)。

《通(tong)知》要(yao)求各地(di)抓緊研究并合理制(zhi)定(ding)中(zhong)小(xiao)用(yong)(yong)戶(hu)(hu)參與市場化交易的方式，中(zhong)小(xiao)用(yong)(yong)戶(hu)(hu)可根(gen)據自(zi)身(shen)實(shi)際自(zi)主選擇，也可以放棄選擇權(quan)，保(bao)持(chi)現有(you)的購電方式；并要(yao)求各地(di)結合本(ben)地(di)區電力供需形(xing)勢，針對全面放開(kai)經營(ying)性電力用(yong)(yong)戶(hu)(hu)發用(yong)(yong)電計劃設定(ding)一(yi)段(duan)時間的過(guo)渡(du)期。

另外，《通(tong)知》指出，針對選擇(ze)(ze)參(can)(can)(can)與(yu)(yu)(yu)市(shi)場(chang)(chang)化(hua)交(jiao)易(yi)(yi)但無法與(yu)(yu)(yu)發電(dian)(dian)企(qi)業達成交(jiao)易(yi)(yi)意向的中(zhong)小(xiao)用(yong)戶(hu)，過渡期(qi)內執(zhi)行原有(you)購(gou)電(dian)(dian)方(fang)式(shi)，過渡期(qi)后執(zhi)行其他市(shi)場(chang)(chang)化(hua)購(gou)電(dian)(dian)方(fang)式(shi)；退出市(shi)場(chang)(chang)化(hua)交(jiao)易(yi)(yi)或未選擇(ze)(ze)參(can)(can)(can)與(yu)(yu)(yu)市(shi)場(chang)(chang)化(hua)交(jiao)易(yi)(yi)的中(zhong)小(xiao)用(yong)戶(hu)，在(zai)再次(ci)直接(jie)參(can)(can)(can)與(yu)(yu)(yu)或通(tong)過代理(li)方(fang)式(shi)參(can)(can)(can)與(yu)(yu)(yu)市(shi)場(chang)(chang)化(hua)交(jiao)易(yi)(yi)前，由(you)電(dian)(dian)網企(qi)業承擔保底供電(dian)(dian)責任。

再次，《通知(zhi)》對(dui)全(quan)面(mian)放(fang)開經(jing)營(ying)性發用電(dian)計劃后(hou)的價格形(xing)成機(ji)制進(jin)行明確(que)。《通知(zhi)》指(zhi)出，全(quan)面(mian)放(fang)開經(jing)營(ying)性發用電(dian)計劃后(hou)的價格形(xing)成機(ji)制，按照價格主(zhu)管部門的有關政策執行；對(dui)于已按市場化交易規(gui)則執行的電(dian)量(liang)，價格仍按照市場化規(gui)則形(xing)成；鼓勵電(dian)力用戶和發電(dian)企業自主(zhu)協商(shang)簽訂合同(tong)時，以(yi)靈活可浮(fu)動的形(xing)式(shi)確(que)定(ding)具(ju)體(ti)價格，價格浮(fu)動方(fang)式(shi)由雙方(fang)事先約定(ding)。

最后，《通知(zhi)》對(dui)清(qing)潔電(dian)(dian)(dian)(dian)源的(de)發(fa)(fa)電(dian)(dian)(dian)(dian)保(bao)(bao)障(zhang)進(jin)行專門(men)安排(pai)。《通知(zhi)》提(ti)出，研(yan)究推(tui)進(jin)保(bao)(bao)障(zhang)優先(xian)(xian)發(fa)(fa)電(dian)(dian)(dian)(dian)政策執行，重點考慮核(he)電(dian)(dian)(dian)(dian)、水電(dian)(dian)(dian)(dian)、風電(dian)(dian)(dian)(dian)、太陽能發(fa)(fa)電(dian)(dian)(dian)(dian)等清(qing)潔能源的(de)保(bao)(bao)障(zhang)性(xing)收購。核(he)電(dian)(dian)(dian)(dian)機(ji)組發(fa)(fa)電(dian)(dian)(dian)(dian)量納入(ru)優先(xian)(xian)發(fa)(fa)電(dian)(dian)(dian)(dian)計劃(hua)，按(an)照優先(xian)(xian)發(fa)(fa)電(dian)(dian)(dian)(dian)優先(xian)(xian)購電(dian)(dian)(dian)(dian)計劃(hua)管(guan)理有(you)關(guan)工(gong)作要求做好保(bao)(bao)障(zhang)消納工(gong)作。

水電(dian)在(zai)消納條件較好地區，根(gen)據來水情(qing)況，兼顧資源條件、歷(li)史(shi)均值(zhi)和綜合利用等(deng)要求，安排優(you)先發電(dian)計劃；在(zai)消納受限(xian)地區，以近年發電(dian)量為基礎，根(gen)據市(shi)場(chang)(chang)空間安排保(bao)(bao)(bao)量保(bao)(bao)(bao)價的優(you)先發電(dian)計劃，保(bao)(bao)(bao)量保(bao)(bao)(bao)價之外的優(you)先發電(dian)量通過市(shi)場(chang)(chang)化方式確(que)定價格(ge)。

風電(dian)、太陽能(neng)發電(dian)等新能(neng)源(yuan)，在國家未核定(ding)最(zui)低(di)保(bao)(bao)障(zhang)收(shou)購(gou)年(nian)利(li)用小時(shi)數的(de)(de)地區(qu)按照資源(yuan)條件全(quan)額安排優(you)先(xian)發電(dian)計劃；在國家核定(ding)最(zui)低(di)保(bao)(bao)障(zhang)收(shou)購(gou)年(nian)利(li)用小時(shi)數的(de)(de)地區(qu)，結合當地供需形勢(shi)合理安排優(you)先(xian)發電(dian)計劃，在國家核定(ding)最(zui)低(di)保(bao)(bao)障(zhang)收(shou)購(gou)年(nian)利(li)用小時(shi)數內電(dian)量(liang)(liang)保(bao)(bao)量(liang)(liang)保(bao)(bao)價收(shou)購(gou)基礎上，鼓勵超過最(zui)低(di)保(bao)(bao)障(zhang)收(shou)購(gou)年(nian)利(li)用小時(shi)數的(de)(de)電(dian)量(liang)(liang)通過參與市場化交易方式競(jing)爭(zheng)上網。

經營性發用電計劃全面放開的影響

經營性電(dian)(dian)力(li)用戶發用電(dian)(dian)計劃全面(mian)放開，是對新電(dian)(dian)改9號(hao)文“三放開、一獨(du)立”的(de)積(ji)極落(luo)實(shi)，反映出市(shi)場(chang)化改革的(de)整體(ti)方向，不(bu)僅使得參與電(dian)(dian)力(li)市(shi)場(chang)的(de)主體(ti)增多，交易(yi)電(dian)(dian)量大(da)幅增加，同(tong)時(shi)有利于(yu)激發市(shi)場(chang)活躍度，倒逼(bi)國內電(dian)(dian)力(li)市(shi)場(chang)的(de)形(xing)成(cheng)和完善(shan)，并將對電(dian)(dian)力(li)行業不(bu)同(tong)環節的(de)市(shi)場(chang)主體(ti)產生不(bu)同(tong)的(de)影(ying)響。

一方面，《通知》的(de)(de)出臺(tai)將(jiang)進一步提升市場化交易電(dian)量(liang)(liang)比例。國家(jia)發展改(gai)革委發布的(de)(de)數據(ju)顯示(shi)，2019年(nian)(nian)上半年(nian)(nian)，全(quan)國完(wan)成電(dian)力(li)市場化交易電(dian)量(liang)(liang)達1.1萬億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)，同比增長29.3%，占(zhan)(zhan)全(quan)社會用(yong)電(dian)量(liang)(liang)的(de)(de)32.4%，占(zhan)(zhan)經(jing)營性行業(ye)用(yong)電(dian)量(liang)(liang)的(de)(de)58.3%。另(ling)外(wai)，國家(jia)能(neng)源局發布的(de)(de)數據(ju)顯示(shi)，2019年(nian)(nian)上半年(nian)(nian)，全(quan)社會用(yong)電(dian)量(liang)(liang)累計33980億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)，其(qi)中，第一產業(ye)、第二(er)產業(ye)、第三產業(ye)和城(cheng)鄉居(ju)民生活用(yong)電(dian)量(liang)(liang)分別為(wei)345億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)、23091億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)、5552億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)、4993億(yi)(yi)千(qian)瓦(wa)(wa)時(shi)，占(zhan)(zhan)全(quan)社會用(yong)電(dian)量(liang)(liang)的(de)(de)比重(zhong)分別為(wei)1.0%、68.0%、16.3%和14.7%。

隨(sui)著經營(ying)性發用電計劃的(de)全(quan)面放(fang)(fang)開，市場(chang)化(hua)交易電量將進一步提(ti)升(sheng)。相關數據顯示，經營(ying)性行業發用電計劃的(de)放(fang)(fang)開在2019年帶(dai)來2000～3000億千瓦時市場(chang)化(hua)交易增量，2019年全(quan)國市場(chang)化(hua)交易電量約為2.6～2.8萬億千瓦時，市場(chang)化(hua)比例提(ti)升(sheng)至50%～60%。

另(ling)一方面(mian)，經(jing)營性電(dian)(dian)(dian)(dian)力發(fa)用(yong)(yong)電(dian)(dian)(dian)(dian)計(ji)劃全(quan)面(mian)放開對(dui)電(dian)(dian)(dian)(dian)力行業(ye)不同(tong)環節(jie)的市場主(zhu)體帶來不同(tong)的影響。對(dui)電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)而言，《通(tong)知》涉及(ji)放開的電(dian)(dian)(dian)(dian)力用(yong)(yong)戶(hu)主(zhu)要為電(dian)(dian)(dian)(dian)價較(jiao)高的一般工商業(ye)用(yong)(yong)戶(hu)，放開后電(dian)(dian)(dian)(dian)網(wang)(wang)不再(zai)享受(shou)這部分用(yong)(yong)戶(hu)的購銷(xiao)差價，因(yin)此，在電(dian)(dian)(dian)(dian)網(wang)(wang)依然需(xu)要保障(zhang)居(ju)民與公(gong)益性用(yong)(yong)電(dian)(dian)(dian)(dian)供應及(ji)規劃內清潔電(dian)(dian)(dian)(dian)源消納情(qing)況下，放開經(jing)營性行業(ye)發(fa)用(yong)(yong)電(dian)(dian)(dian)(dian)計(ji)劃將導致電(dian)(dian)(dian)(dian)網(wang)(wang)企業(ye)利潤下降。

對發(fa)電企(qi)(qi)業(ye)而(er)(er)言(yan)，《通知(zhi)》針對清(qing)潔能(neng)源(yuan)電源(yuan)類型、發(fa)電區域而(er)(er)進(jin)行(xing)的保障工作(zuo)安(an)排(pai)，有利于進(jin)一步(bu)降低(di)新(xin)(xin)能(neng)源(yuan)項目(mu)的消(xiao)納(na)風險，降低(di)棄水、棄風、棄光現象，促(cu)進(jin)新(xin)(xin)能(neng)源(yuan)產業(ye)的發(fa)展。對用(yong)電企(qi)(qi)業(ye)而(er)(er)言(yan)，新(xin)(xin)電改(gai)推進(jin)以(yi)來，受制(zhi)于準入條(tiao)件(jian)等因素，中小用(yong)戶電力(li)市場(chang)化(hua)參與程度較低(di)。

《通知》明(ming)確強調“積極(ji)支持(chi)中(zhong)小用戶由(you)售電(dian)公司代(dai)理參(can)加市場化交易(yi)”，且中(zhong)小用戶參(can)與方式靈(ling)活，在降成本背景下，中(zhong)小用戶用電(dian)有望成為市場化交易(yi)的(de)重要(yao)增量，并將有效分享改革(ge)紅(hong)利。