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自2015年(nian)3月本(ben)輪電力體制改革(ge)正式(shi)啟動(dong)，一(yi)轉眼時間已經過去了(le)五年(nian)。在(zai)(zai)“十(shi)三(san)五”正在(zai)(zai)收官、“十(shi)四五”即將啟航的(de)時刻，我(wo)們(men)有必要認真回顧本(ben)輪電改取得的(de)成就、反思存在(zai)(zai)的(de)問題、審視面(mian)臨的(de)困難、展望后續努力的(de)方(fang)向(xiang)。

對于(yu)電(dian)改(gai)的(de)成效，最直觀(guan)的(de)感受是電(dian)價(jia)(jia)。本文(wen)將從電(dian)價(jia)(jia)視角，觀(guan)察本輪電(dian)改(gai)以來的(de)電(dian)價(jia)(jia)水平、電(dian)價(jia)(jia)機制、電(dian)價(jia)(jia)外成本等進展和問題，并對一些(xie)關鍵(jian)問題提出(chu)建(jian)議(yi)。

一、從電價水平看本輪電改

電價水平顯著降低

本(ben)輪(lun)電(dian)(dian)改(gai)以來(lai)，我(wo)國電(dian)(dian)價總體水(shui)平明顯(xian)降低(di)(di)。一般(ban)工商業(ye)電(dian)(dian)價下降最為明顯(xian)，全國平均(jun)降低(di)(di)超過(guo)20%。電(dian)(dian)價水(shui)平的(de)降低(di)(di)對于支持實體經(jing)濟，特別是(shi)中小企業(ye)的(de)生存和發展發揮了積極作(zuo)用(yong)。

近年來(lai)電(dian)價水平的降低，主要歸功于兩(liang)方(fang)面的因素：

一是上網電(dian)(dian)(dian)價降(jiang)(jiang)低(di)。隨著我國(guo)經濟(ji)發展進入“新常態”，電(dian)(dian)(dian)力(li)出現了供過于求的局面。在這種形勢下開展電(dian)(dian)(dian)力(li)交易，發電(dian)(dian)(dian)行(xing)業會(hui)降(jiang)(jiang)低(di)利潤甚至虧損(sun)，市場交易價格自然(ran)會(hui)降(jiang)(jiang)低(di)。

二是(shi)稅費降低(di)。近兩三(san)年來，國家出臺(tai)了一系(xi)列政策(ce)，大(da)幅(fu)度(du)降低(di)了增(zeng)值稅、政府(fu)性基(ji)金及附加(jia)等。

各類用戶之間的交叉補貼得到了改善，但仍然嚴重

本輪電改(gai)顯著(zhu)降(jiang)低了一般工商業(ye)電價(jia)。一些省區甚至出現了一般工商業(ye)電價(jia)和成(cheng)本倒掛的情況。

大工(gong)業(ye)、居民和(he)農業(ye)用電(dian)(dian)(dian)價(jia)(jia)格這五年(nian)(nian)來變化不大。2019年(nian)(nian)甚至還出(chu)現了(le)大工(gong)業(ye)用電(dian)(dian)(dian)不含稅電(dian)(dian)(dian)價(jia)(jia)不降反升的情況(kuang)，原(yuan)因是電(dian)(dian)(dian)網企業(ye)增值稅稅率從16%調整為13%形成的降價(jia)(jia)空(kong)間全部用于降低一般(ban)工(gong)商業(ye)電(dian)(dian)(dian)價(jia)(jia)，而大工(gong)業(ye)用戶含稅電(dian)(dian)(dian)價(jia)(jia)不變，由此造(zao)成了(le)大工(gong)業(ye)用電(dian)(dian)(dian)不含稅電(dian)(dian)(dian)價(jia)(jia)升高(gao)。

各電壓等級之間的交叉補貼沒有改善

由于長期(qi)以來交叉補(bu)貼(tie)的影響(xiang)，我(wo)國(guo)普遍存在高(gao)(gao)壓(ya)(ya)用電(dian)對低(di)(di)壓(ya)(ya)用電(dian)的補(bu)貼(tie)，結果就是高(gao)(gao)壓(ya)(ya)電(dian)價過高(gao)(gao)，而低(di)(di)壓(ya)(ya)電(dian)價偏低(di)(di)。

這個問題本來是原有電價(jia)機(ji)制（目(mu)錄電價(jia)）的(de)問題，但(dan)由于在核定第一個監管周期輸配電價(jia)時，考慮了與目(mu)錄電價(jia)的(de)“銜接”，導致(zhi)這個問題也被(bei)帶到了輸配電價(jia)中。

這個問(wen)題正是(shi)當前(qian)諸多問(wen)題的(de)(de)根源，例如：轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)屢禁不止，甚至(zhi)愈演(yan)愈烈。由于(yu)(yu)電(dian)(dian)(dian)(dian)(dian)(dian)壓(ya)等級之間的(de)(de)價(jia)差過(guo)低(di)，造成(cheng)(cheng)了(le)(le)電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)(wang)企(qi)業只愿意投(tou)(tou)資(zi)建(jian)設(she)(she)高(gao)壓(ya)輸電(dian)(dian)(dian)(dian)(dian)(dian)設(she)(she)施，低(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)設(she)(she)施往往是(shi)電(dian)(dian)(dian)(dian)(dian)(dian)力用戶(hu)被迫(po)自己(ji)投(tou)(tou)資(zi)建(jian)設(she)(she)，部分無力承擔(dan)這些投(tou)(tou)資(zi)的(de)(de)電(dian)(dian)(dian)(dian)(dian)(dian)力用戶(hu)只能找已(yi)建(jian)設(she)(she)了(le)(le)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)設(she)(she)施的(de)(de)用戶(hu)接電(dian)(dian)(dian)(dian)(dian)(dian)，于(yu)(yu)是(shi)形(xing)成(cheng)(cheng)了(le)(le)轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)；增量配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)改(gai)革試點項目已(yi)推四批，但鮮有成(cheng)(cheng)功案(an)例。同(tong)樣是(shi)因為電(dian)(dian)(dian)(dian)(dian)(dian)壓(ya)等級之間的(de)(de)價(jia)差過(guo)低(di)，而(er)(er)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)企(qi)業收取的(de)(de)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)格又無法超越這個價(jia)差，導(dao)致(zhi)(zhi)了(le)(le)全國性的(de)(de)增量配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)業務改(gai)革停滯(zhi)；進一步扭(niu)曲輸配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)，導(dao)致(zhi)(zhi)惡(e)(e)性循環(huan)。由于(yu)(yu)電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)(wang)不愿意投(tou)(tou)資(zi)低(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)設(she)(she)施，導(dao)致(zhi)(zhi)電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)(wang)準許(xu)成(cheng)(cheng)本中低(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)成(cheng)(cheng)本偏低(di)，從(cong)而(er)(er)導(dao)致(zhi)(zhi)核(he)定的(de)(de)輸配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)在電(dian)(dian)(dian)(dian)(dian)(dian)壓(ya)等級之間的(de)(de)價(jia)差偏低(di)，進而(er)(er)引導(dao)電(dian)(dian)(dian)(dian)(dian)(dian)網(wang)(wang)企(qi)業避(bi)免投(tou)(tou)資(zi)低(di)壓(ya)配(pei)電(dian)(dian)(dian)(dian)(dian)(dian)設(she)(she)施，最終形(xing)成(cheng)(cheng)了(le)(le)惡(e)(e)性循環(huan)。

二、從電價機制看本輪電改

新的電價機制已基本成型

本(ben)輪電(dian)(dian)(dian)(dian)改最核心(xin)的(de)(de)目標(biao)就是(shi)建立“市場交(jiao)易價(jia)(jia)格(ge)+輸配電(dian)(dian)(dian)(dian)價(jia)(jia)”這(zhe)個新的(de)(de)電(dian)(dian)(dian)(dian)價(jia)(jia)形成機(ji)制。“市場交(jiao)易價(jia)(jia)格(ge)”是(shi)通過市場競爭來發現(xian)電(dian)(dian)(dian)(dian)能的(de)(de)價(jia)(jia)格(ge)，這(zhe)部分價(jia)(jia)格(ge)反映的(de)(de)是(shi)電(dian)(dian)(dian)(dian)能的(de)(de)供需平衡情(qing)況，可(ke)能是(shi)快(kuai)速(su)變化(hua)的(de)(de)；而“輸配電(dian)(dian)(dian)(dian)價(jia)(jia)”則是(shi)由監管機(ji)構依據規則來核定(ding)，這(zhe)部分情(qing)況反映的(de)(de)是(shi)電(dian)(dian)(dian)(dian)網企業合(he)理(li)的(de)(de)輸配電(dian)(dian)(dian)(dian)成本(ben)（一(yi)般還要(yao)考慮其合(he)理(li)收益），在一(yi)段時期內(nei)保(bao)持穩定(ding)。

當前(qian)這個目標(biao)已(yi)經(jing)基(ji)(ji)本實現：一是在“市場(chang)交(jiao)(jiao)易價(jia)格(ge)”方(fang)面，全(quan)國(guo)各省(sheng)(sheng)區基(ji)(ji)本都建立(li)了(le)電(dian)(dian)(dian)力交(jiao)(jiao)易中心(xin)，2019年市場(chang)化交(jiao)(jiao)易電(dian)(dian)(dian)量在總用電(dian)(dian)(dian)量中的(de)占比(bi)已(yi)經(jing)超過30%；幾個試點省(sheng)(sheng)份的(de)電(dian)(dian)(dian)力現貨市場(chang)均(jun)已(yi)開(kai)展了(le)試結(jie)算，很快就能正式運行；二是在“輸(shu)配(pei)(pei)電(dian)(dian)(dian)價(jia)”方(fang)面，2016年至2017年，《省(sheng)(sheng)級電(dian)(dian)(dian)網輸(shu)配(pei)(pei)電(dian)(dian)(dian)價(jia)定(ding)價(jia)辦法(fa)(fa)（試行）》、《區域(yu)電(dian)(dian)(dian)網輸(shu)電(dian)(dian)(dian)價(jia)格(ge)定(ding)價(jia)辦法(fa)(fa)（試行）》和《跨省(sheng)(sheng)跨區專項(xiang)工程輸(shu)電(dian)(dian)(dian)價(jia)格(ge)定(ding)價(jia)辦法(fa)(fa)（試行）》相繼出(chu)臺，2017年全(quan)國(guo)各省(sheng)(sheng)區基(ji)(ji)本都核(he)定(ding)了(le)輸(shu)配(pei)(pei)電(dian)(dian)(dian)價(jia)，新監管周期(qi)的(de)輸(shu)配(pei)(pei)電(dian)(dian)(dian)價(jia)也即將公布并從今年開(kai)始實施。

當前，新舊兩套電(dian)價(jia)(jia)機制在(zai)雙(shuang)軌(gui)運行，因為工商業用(yong)電(dian)中(zhong)仍有(you)部分(fen)用(yong)戶未參與(yu)電(dian)力交(jiao)易(yi)(yi)，仍然在(zai)沿(yan)用(yong)目錄(lu)電(dian)價(jia)(jia)。如果國(guo)家(jia)發(fa)改(gai)委去(qu)年底印發(fa)的(de)《關于深化燃煤(mei)發(fa)電(dian)上(shang)網(wang)電(dian)價(jia)(jia)形成機制改(gai)革的(de)指導意見》（發(fa)改(gai)價(jia)(jia)格(ge)(ge)規〔2019〕1658號(hao)）中(zhong)提出的(de)“基(ji)準價(jia)(jia)+浮(fu)動(dong)”機制能按計劃在(zai)2020年落地，屆時所有(you)的(de)經營(ying)性用(yong)電(dian)量都會基(ji)于新的(de)電(dian)價(jia)(jia)機制，只是其中(zhong)的(de)“市場(chang)交(jiao)易(yi)(yi)價(jia)(jia)格(ge)(ge)”采用(yong)“基(ji)準價(jia)(jia)+浮(fu)動(dong)”機制形成而已(yi)。

原電價機制（目錄電價）的影響仍廣泛存在

一(yi)(yi)方面(mian)由(you)于目(mu)錄(lu)(lu)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)已(yi)(yi)經(jing)根深蒂固，再加上“降電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)”需要一(yi)(yi)個“錨(mao)”來參(can)照，即(ji)使(shi)對于已(yi)(yi)經(jing)參(can)與(yu)了(le)電(dian)(dian)(dian)(dian)(dian)(dian)力市場交(jiao)易(yi)的用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)(dian)(dian)，目(mu)錄(lu)(lu)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)的“身影”仍隨(sui)處可見，例如：為(wei)了(le)讓(rang)電(dian)(dian)(dian)(dian)(dian)(dian)力用(yong)(yong)(yong)(yong)戶體驗到(dao)降電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)的“獲得感”，很多(duo)省區在電(dian)(dian)(dian)(dian)(dian)(dian)力市場交(jiao)易(yi)的電(dian)(dian)(dian)(dian)(dian)(dian)費(fei)結算(suan)環節(jie)并沒有(you)采(cai)用(yong)(yong)(yong)(yong)新的電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)機制(zhi)(zhi)（沒有(you)采(cai)用(yong)(yong)(yong)(yong)核定的輸配電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)），而(er)是采(cai)用(yong)(yong)(yong)(yong)“價(jia)(jia)(jia)(jia)(jia)(jia)差”模式，在原(yuan)(yuan)有(you)目(mu)錄(lu)(lu)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)上浮動；經(jing)過多(duo)輪(lun)降價(jia)(jia)(jia)(jia)(jia)(jia)后，當前一(yi)(yi)般(ban)工商業(ye)用(yong)(yong)(yong)(yong)電(dian)(dian)(dian)(dian)(dian)(dian)目(mu)錄(lu)(lu)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)較(jiao)低，在一(yi)(yi)些(xie)地方已(yi)(yi)經(jing)低于新電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)機制(zhi)(zhi)形成的價(jia)(jia)(jia)(jia)(jia)(jia)格(ge)，這(zhe)會阻礙一(yi)(yi)般(ban)工商業(ye)用(yong)(yong)(yong)(yong)戶進入(ru)電(dian)(dian)(dian)(dian)(dian)(dian)力市場參(can)與(yu)交(jiao)易(yi)；原(yuan)(yuan)有(you)的目(mu)錄(lu)(lu)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)中有(you)峰谷分時電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)、豐枯(ku)季(ji)節(jie)電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)等(deng)，新的價(jia)(jia)(jia)(jia)(jia)(jia)格(ge)機制(zhi)(zhi)無法與(yu)這(zhe)些(xie)價(jia)(jia)(jia)(jia)(jia)(jia)格(ge)“銜接”，同樣(yang)導致(zhi)部分用(yong)(yong)(yong)(yong)戶不愿(yuan)意進入(ru)電(dian)(dian)(dian)(dian)(dian)(dian)力市場，甚至呼(hu)吁加大峰谷電(dian)(dian)(dian)(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)(jia)的價(jia)(jia)(jia)(jia)(jia)(jia)差。

行政干預電價有增無減

盡管“使市(shi)場(chang)在(zai)資(zi)(zi)源(yuan)(yuan)配置中起(qi)決定(ding)性(xing)作用”、“形(xing)成(cheng)主要由(you)市(shi)場(chang)決定(ding)能源(yuan)(yuan)價(jia)格的機制”是本輪電(dian)(dian)改的指導(dao)思想，而且新(xin)的電(dian)(dian)價(jia)形(xing)成(cheng)機制也已經基本成(cheng)型(xing)，但(dan)“看得(de)見的手(shou)”仍在(zai)直(zhi)接干預電(dian)(dian)價(jia)，甚至比本輪電(dian)(dian)改前更加頻繁(fan)。當前一些地(di)(di)(di)方政(zheng)(zheng)府(fu)直(zhi)接干預電(dian)(dian)價(jia)的主要方式包括(kuo)：為了滿(man)足“去落后產能”等(deng)(deng)宏觀調控(kong)的需要，通過制定(ding)“綠色(se)發展電(dian)(dian)價(jia)”、“差別電(dian)(dian)價(jia)”和(he)“階梯電(dian)(dian)價(jia)”等(deng)(deng)政(zheng)(zheng)策(ce)，人為地(di)(di)(di)對不同(tong)用戶征收不同(tong)電(dian)(dian)價(jia)；為了招商引(yin)資(zi)(zi)來拉動地(di)(di)(di)方經濟發展，各(ge)地(di)(di)(di)競相打造“電(dian)(dian)價(jia)洼(wa)地(di)(di)(di)”，對部分用戶承(cheng)諾(nuo)超低電(dian)(dian)價(jia)；為了推動“棄水”消納(na)、“煤改電(dian)(dian)”等(deng)(deng)，部分地(di)(di)(di)區(qu)不斷(duan)出臺各(ge)種“優惠”、“減免(mian)”、“階段性(xing)降低電(dian)(dian)價(jia)”措施，人為扭曲電(dian)(dian)價(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(chu)按照電(dian)價(jia)向電(dian)網企(qi)業支(zhi)付電(dian)費(fei)以外，工商業企(qi)業往往還需要自行(xing)投資建設外線(xian)接電(dian)工程(cheng)及(ji)相關設施(shi)。這些設施(shi)的成(cheng)本（如折舊(jiu)和運(yun)維(wei)費(fei)用）在電(dian)價(jia)之外，但同(tong)樣是企(qi)業需要承(cheng)擔(dan)的電(dian)力成(cheng)本，有時占的比重還很高。

如果上述設施由電(dian)網企業(ye)投資建設，用戶只(zhi)需在(zai)辦理接電(dian)（業(ye)擴(kuo)）時向電(dian)網企業(ye)繳納費用，這筆費用就是“獲得電(dian)力成本”。

為了(le)推動(dong)營商環(huan)境的改(gai)善，“獲得電力(li)成(cheng)本”近年來逐漸受到重(zhong)視。隨著本輪電力(li)體制改(gai)革的推進，部(bu)分電網企(qi)業開始將投資界面延伸到用(yong)戶規(gui)劃用(yong)電的紅(hong)線(xian)(xian)甚至(zhi)紅(hong)線(xian)(xian)以(yi)內，電力(li)用(yong)戶“獲得電力(li)成(cheng)本”顯著降低。

硬性降低“獲得電力成本”正在造成新的交叉補貼

為了(le)提高“獲得(de)電(dian)力”指(zhi)標的評分，部分地區硬性(xing)降低“獲得(de)電(dian)力成本(ben)”，甚至(zhi)直接降到0。

由于(yu)輸配電(dian)(dian)是(shi)管(guan)制性業務(wu)，如果(guo)用戶(hu)不(bu)自行(xing)投資建(jian)設其接電(dian)(dian)設施，也不(bu)足額承擔其“獲得電(dian)(dian)力成(cheng)(cheng)(cheng)本(ben)”，相關成(cheng)(cheng)(cheng)本(ben)都會被計(ji)入電(dian)(dian)網企業的輸配電(dian)(dian)成(cheng)(cheng)(cheng)本(ben)，最終(zhong)由全(quan)體電(dian)(dian)力用戶(hu)共同分攤(tan)，最終(zhong)造成(cheng)(cheng)(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)(dian)價水平(ping)，特別是(shi)工商業電(dian)(dian)價水平(ping)，是(shi)本輪電(dian)(dian)改的(de)初(chu)心之一。但電(dian)(dian)價的(de)降低(di)應該(gai)是(shi)新的(de)電(dian)(dian)價形成機(ji)制建立以后(hou)的(de)自然(ran)結果(guo)，而(er)不能是(shi)直接(jie)手段(duan)。如果(guo)目標單純是(shi)降低(di)電(dian)(dian)價，那(nei)只(zhi)需(xu)要一份(fen)行政命令就夠了，根本不需(xu)要花費多年的(de)時間(jian)和(he)大(da)量的(de)人(ren)力(li)物(wu)力(li)來推(tui)動電(dian)(dian)力(li)體制改革。

實際(ji)上(shang)，隨(sui)著(zhu)新能源發電(dian)滲透率(lv)上(shang)升，調峰燃氣(qi)機組、儲能等設(she)施(shi)的(de)裝(zhuang)機規模必然上(shang)升，其昂貴的(de)發電(dian)和備用成本將(jiang)對我國的(de)電(dian)價水平(ping)帶來(lai)非常現實的(de)上(shang)漲壓力。

我們應(ying)正(zheng)確(que)看待電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)(de)(de)浮動(dong)(dong)(dong)，避(bi)免一(yi)些因(yin)擔心(xin)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)(de)(de)正(zheng)常浮動(dong)(dong)(dong)而干預電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)或電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)形成機制(zhi)的(de)(de)(de)做法，例(li)如(ru)：避(bi)免為電(dian)(dian)(dian)力市場(chang)交易(yi)設置過(guo)(guo)低的(de)(de)(de)限價(jia)(jia)(jia)(jia)(jia)。既(ji)然(ran)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)要由市場(chang)決(jue)定(ding)，那么隨著市場(chang)中供(gong)需的(de)(de)(de)變(bian)化，電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)(de)(de)浮動(dong)(dong)(dong)就是(shi)(shi)正(zheng)常的(de)(de)(de)、必然(ran)的(de)(de)(de)。電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)(de)(de)短時間上升，甚至超過(guo)(guo)原來(lai)的(de)(de)(de)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)水平，都正(zheng)是(shi)(shi)電(dian)(dian)(dian)力商品(pin)屬性的(de)(de)(de)表現。高(gao)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)同時也是(shi)(shi)一(yi)種經濟信號，能引導投(tou)資進入，從而在(zai)長(chang)期(qi)上保持(chi)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)水平的(de)(de)(de)穩定(ding)；避(bi)免原有目錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)對(dui)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)改革的(de)(de)(de)負面(mian)影響(xiang)。在(zai)經營性用(yong)(yong)電(dian)(dian)(dian)全(quan)部進入市場(chang)或者(zhe)參(can)與“基準價(jia)(jia)(jia)(jia)(jia)+浮動(dong)(dong)(dong)”機制(zhi)后，應(ying)盡快徹(che)底(di)取消(xiao)工商業目錄(lu)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)，結(jie)束電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)的(de)(de)(de)雙軌制(zhi)；對(dui)于(yu)不參(can)與或者(zhe)退出(chu)電(dian)(dian)(dian)力市場(chang)的(de)(de)(de)用(yong)(yong)戶(hu)，應(ying)適(shi)用(yong)(yong)保底(di)供(gong)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)格（保底(di)供(gong)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)格比新價(jia)(jia)(jia)(jia)(jia)格機制(zhi)形成的(de)(de)(de)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)高(gao)）；避(bi)免隨意調整電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)。如(ru)果(guo)(guo)在(zai)特(te)定(ding)時期(qi)、特(te)定(ding)區域、特(te)定(ding)行業或者(zhe)特(te)定(ding)用(yong)(yong)戶(hu)群體需要補貼，我們應(ying)該(gai)(gai)做的(de)(de)(de)是(shi)(shi)直(zhi)接補貼，而不是(shi)(shi)扭曲電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)；如(ru)果(guo)(guo)的(de)(de)(de)確(que)需要通過(guo)(guo)電(dian)(dian)(dian)費(fei)這(zhe)個繳費(fei)渠道來(lai)補貼，也應(ying)該(gai)(gai)在(zai)電(dian)(dian)(dian)費(fei)單上明確(que)、單獨列出(chu)；避(bi)免因(yin)短期(qi)降(jiang)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)需求影響(xiang)長(chang)期(qi)監管機制(zhi)的(de)(de)(de)嚴(yan)肅性。由于(yu)當(dang)前面(mian)臨嚴(yan)峻的(de)(de)(de)降(jiang)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)壓(ya)力，當(dang)前版本(ben)(ben)的(de)(de)(de)《輸配電(dian)(dian)(dian)定(ding)價(jia)(jia)(jia)(jia)(jia)成本(ben)(ben)監審辦(ban)法》和《省級(ji)電(dian)(dian)(dian)網輸配電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)定(ding)價(jia)(jia)(jia)(jia)(jia)辦(ban)法》中存在(zai)一(yi)些短期(qi)看能降(jiang)電(dian)(dian)(dian)價(jia)(jia)(jia)(jia)(jia)，但長(chang)期(qi)看副作(zuo)用(yong)(yong)更多的(de)(de)(de)規定(ding)。

理順電價形成機制才是本輪電改的核心目標

新的(de)電(dian)價形成機制已經建立，但遠未理順，因為交叉(cha)補(bu)貼(tie)(tie)這個“老大(da)難”問題還(huan)依然存在。9號文部署(shu)的(de)28項(xiang)重點工(gong)作中(zhong)第3項(xiang)就是“妥(tuo)善處理電(dian)價交叉(cha)補(bu)貼(tie)(tie)”，這也從側面(mian)反映了(le)交叉(cha)補(bu)貼(tie)(tie)問題的(de)重要程度和困(kun)難程度。

對于當前(qian)存在的比較嚴重的兩類交叉補貼，我(wo)們應分別(bie)妥善(shan)處理(li)：

一是大工業(ye)用(yong)(yong)電(dian)(dian)(dian)(dian)補(bu)貼(tie)居民(min)和(he)農業(ye)用(yong)(yong)電(dian)(dian)(dian)(dian)。處理(li)這(zhe)類(lei)交叉補(bu)貼(tie)的(de)(de)(de)關(guan)鍵是適(shi)當提高(gao)居民(min)用(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格，因為我國的(de)(de)(de)居民(min)用(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格不僅(jin)低(di)于(yu)成(cheng)本，也遠低(di)于(yu)大多數(shu)國家。為了減少對(dui)低(di)收入人群(qun)的(de)(de)(de)影響，提高(gao)居民(min)用(yong)(yong)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)格可(ke)以采用(yong)(yong)拉大階梯電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)的(de)(de)(de)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)差等(deng)方(fang)式(shi)；二是高(gao)電(dian)(dian)(dian)(dian)壓用(yong)(yong)電(dian)(dian)(dian)(dian)補(bu)貼(tie)低(di)電(dian)(dian)(dian)(dian)壓用(yong)(yong)電(dian)(dian)(dian)(dian)。處理(li)這(zhe)類(lei)交叉補(bu)貼(tie)的(de)(de)(de)關(guan)鍵是不再要求輸配(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)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)依據各電(dian)(dian)(dian)(dian)壓等(deng)級的(de)(de)(de)實際供電(dian)(dian)(dian)(dian)成(cheng)本核(he)定(ding)。如果由(you)于(yu)長期電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)扭曲導致電(dian)(dian)(dian)(dian)網(wang)企業(ye)中低(di)壓配(pei)電(dian)(dian)(dian)(dian)資(zi)產過少，核(he)定(ding)輸配(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)時可(ke)以采用(yong)(yong)“典型電(dian)(dian)(dian)(dian)網(wang)模型”等(deng)方(fang)法，逐步將扭曲的(de)(de)(de)輸配(pei)電(dian)(dian)(dian)(dian)價(jia)(jia)(jia)回(hui)歸到(dao)正(zheng)常水平(ping)。

新(xin)的電(dian)(dian)價(jia)形成機制(zhi)難(nan)以理順的另外(wai)一個(ge)因(yin)素，是原(yuan)有(you)目錄電(dian)(dian)價(jia)的干擾。只有(you)徹(che)底(di)廢止工商(shang)業用電(dian)(dian)的目錄電(dian)(dian)價(jia)，各界翹首(shou)以盼(pan)的分(fen)時(shi)輸(shu)配電(dian)(dian)價(jia)、可(ke)選擇的輸(shu)配電(dian)(dian)價(jia)套餐(can)、乃至三部(bu)制(zhi)輸(shu)配電(dian)(dian)價(jia)等(deng)創新(xin)價(jia)格(ge)機制(zhi)才可(ke)能(neng)出現(xian)，售電(dian)(dian)側市場才可(ke)能(neng)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(de)電力體制(zhi)改革經驗表明(ming)，輸配電環(huan)節實現公平開(kai)放且受到嚴格(ge)監管，是有(you)效的(de)電力市場(chang)得以形(xing)成的(de)前提。也就是說(shuo)，只有(you)“管住了中間”，“放開(kai)兩頭”才有(you)實際(ji)意義。

然而，從這五年來的實際(ji)情況看(kan)，“管住中(zhong)(zhong)間”做得(de)(de)明顯不(bu)夠，電(dian)(dian)網企業往往既是運動員又是裁判(pan)員，電(dian)(dian)力(li)交易(yi)中(zhong)(zhong)心(xin)的電(dian)(dian)力(li)交易(yi)結果經常得(de)(de)不(bu)到執行。時隔五年，國家(jia)發改委、國家(jia)能(neng)源局還在印發《關于(yu)推(tui)進電(dian)(dian)力(li)交易(yi)機構(gou)獨立規(gui)范(fan)運行的實施意見》的通知（發改體改〔2020〕234號），目(mu)標是在今(jin)年內實現電(dian)(dian)力(li)交易(yi)機構(gou)的獨立規(gui)范(fan)運行。“管住中(zhong)(zhong)間”的難度，由(you)此可見一斑(ban)。

“管住中間(jian)”，除了(le)支撐“放(fang)開兩頭”之外，同樣重要(yao)的(de)是通過對電網企業的(de)有效(xiao)監管來降低輸配(pei)(pei)電價。實際上，如果要(yao)繼(ji)(ji)續挖掘降電價的(de)潛力，發電環節讓利已經難以(yi)為繼(ji)(ji)，而(er)輸配(pei)(pei)電環節的(de)效(xiao)率還(huan)有提升空間(jian)。

加(jia)強對輸(shu)配電環節的監管，應從以(yi)下(xia)幾個方面著手：

一(yi)是(shi)(shi)分(fen)開監管(guan)(guan)輸電(dian)(dian)(dian)業(ye)務(wu)和(he)配(pei)電(dian)(dian)(dian)業(ye)務(wu)。電(dian)(dian)(dian)網企業(ye)同(tong)(tong)時經(jing)(jing)(jing)營輸電(dian)(dian)(dian)業(ye)務(wu)和(he)配(pei)電(dian)(dian)(dian)業(ye)務(wu)沒(mei)有(you)問(wen)題，但由于(yu)輸電(dian)(dian)(dian)業(ye)務(wu)和(he)配(pei)電(dian)(dian)(dian)業(ye)務(wu)的(de)(de)性質非(fei)常不同(tong)(tong)，對(dui)(dui)應(ying)(ying)的(de)(de)監管(guan)(guan)方式（甚至監管(guan)(guan)機(ji)(ji)構）都會不同(tong)(tong)，因(yin)此一(yi)定要將這兩項業(ye)務(wu)分(fen)開；二是(shi)(shi)推(tui)行特許(xu)經(jing)(jing)(jing)營制(zhi)度。不論是(shi)(shi)對(dui)(dui)于(yu)增量(liang)配(pei)電(dian)(dian)(dian)業(ye)務(wu)，還是(shi)(shi)存量(liang)的(de)(de)配(pei)電(dian)(dian)(dian)業(ye)務(wu)，都應(ying)(ying)該(gai)明確電(dian)(dian)(dian)網設(she)施的(de)(de)產(chan)權，并通(tong)過特許(xu)經(jing)(jing)(jing)營合同(tong)(tong)來明確經(jing)(jing)(jing)營期限、經(jing)(jing)(jing)營者責任、退出機(ji)(ji)制(zhi)等，否(fou)則有(you)效的(de)(de)監管(guan)(guan)無從談起；三是(shi)(shi)加強監管(guan)(guan)能力建設(she)。

在原電(dian)監(jian)(jian)會撤銷后，我國輸配(pei)電(dian)業(ye)務的監(jian)(jian)管(guan)只能(neng)分散到了(le)能(neng)源、價(jia)格、經信、能(neng)見局（辦）等(deng)多個機構(gou)，且存在政監(jian)(jian)不分、監(jian)(jian)管(guan)權力(li)交叉、監(jian)(jian)管(guan)信息孤(gu)島(dao)等(deng)體制(zhi)問題。要(yao)實現對(dui)輸配(pei)電(dian)業(ye)務的有效監(jian)(jian)管(guan)，最好是建立(li)有足(zu)夠權限、獨立(li)、綜合(he)的監(jian)(jian)管(guan)機構(gou)，還應建立(li)公(gong)眾參與監(jian)(jian)管(guan)的機制(zhi)。