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近期(qi)，國家能源(yuan)局啟(qi)動了《供(gong)電營業區(qu)劃(hua)分(fen)及管(guan)理(li)辦法》修(xiu)訂工作(zuo)。究(jiu)竟如何看(kan)待(dai)供(gong)電營業區(qu)制(zhi)(zhi)度？如何定義供(gong)電營業區(qu)？按什么原(yuan)則劃(hua)分(fen)和管(guan)理(li)，又該(gai)由誰(shui)來劃(hua)分(fen)和管(guan)理(li)？隨著(zhu)新一(yi)輪(lun)電力體制(zhi)(zhi)改革(ge)的深入推進(jin)，尤其是在“管(guan)住中(zhong)間、放開兩頭”的體制(zhi)(zhi)架構下，這一(yi)系列問題亟待(dai)按照(zhao)實事求是的精神進(jin)行(xing)與時俱(ju)進(jin)的探討，不(bu)能再簡(jian)單地蕭規(gui)曹隨。

供電業務需要新的內涵

《電(dian)(dian)(dian)力(li)法(fa)》1996年(nian)(nian)(nian)實(shi)施起就確立(li)了(le)供電(dian)(dian)(dian)營(ying)(ying)業(ye)區制(zhi)(zhi)(zhi)度(du)(du)。供電(dian)(dian)(dian)營(ying)(ying)業(ye)區制(zhi)(zhi)(zhi)度(du)(du)的(de)(de)(de)(de)核心是(shi)“一個供電(dian)(dian)(dian)營(ying)(ying)業(ye)區內只設立(li)一個供電(dian)(dian)(dian)營(ying)(ying)業(ye)機構”，這(zhe)是(shi)電(dian)(dian)(dian)網的(de)(de)(de)(de)自然(ran)壟斷屬性(xing)決(jue)定的(de)(de)(de)(de)。雖(sui)然(ran)經歷了(le)2002年(nian)(nian)(nian)以(yi)“廠網分(fen)開(kai)”為(wei)特征(zheng)的(de)(de)(de)(de)電(dian)(dian)(dian)力(li)體(ti)制(zhi)(zhi)(zhi)改(gai)革(ge)，以(yi)及2015年(nian)(nian)(nian)啟動的(de)(de)(de)(de)以(yi)“管住中(zhong)間、放開(kai)兩頭”為(wei)特征(zheng)的(de)(de)(de)(de)新一輪電(dian)(dian)(dian)力(li)體(ti)制(zhi)(zhi)(zhi)改(gai)革(ge)，《電(dian)(dian)(dian)力(li)法(fa)》在(zai)2009年(nian)(nian)(nian)、2015年(nian)(nian)(nian)和(he)2018年(nian)(nian)(nian)也有過三次修訂(ding)，其中(zhong)后兩次修訂(ding)都(dou)涉及供電(dian)(dian)(dian)營(ying)(ying)業(ye)區制(zhi)(zhi)(zhi)度(du)(du)，但供電(dian)(dian)(dian)營(ying)(ying)業(ye)區制(zhi)(zhi)(zhi)度(du)(du)并未出現(xian)根本性(xing)調整。應該(gai)說，實(shi)踐證明供電(dian)(dian)(dian)營(ying)(ying)業(ye)區制(zhi)(zhi)(zhi)度(du)(du)是(shi)適(shi)合我國(guo)(guo)國(guo)(guo)情和(he)電(dian)(dian)(dian)力(li)行業(ye)發展需要的(de)(de)(de)(de)。

不論(lun)是(shi)《電力法(fa)》，還是(shi)《電力供應(ying)與(yu)使用條(tiao)例(li)》以及(ji)《供電營(ying)業區劃分及(ji)管(guan)理辦(ban)法(fa)》，我國電力法(fa)規一(yi)個普遍的特點就是(shi)條(tiao)文中(zhong)對(dui)名詞(ci)缺乏明晰的定義——究竟什么是(shi)供電？發電業務(wu)(wu)在不在內？它(ta)包(bao)含(han)輸配(pei)業務(wu)(wu)還是(shi)只包(bao)含(han)配(pei)電業務(wu)(wu)？是(shi)否包(bao)含(han)售電業務(wu)(wu)？

傳統的(de)(de)“供電(dian)(dian)(dian)(dian)(dian)”是(shi)(shi)(shi)指將電(dian)(dian)(dian)(dian)(dian)能通過輸配電(dian)(dian)(dian)(dian)(dian)裝置安全、可靠(kao)、連續(xu)、合格地銷售(shou)給(gei)廣大電(dian)(dian)(dian)(dian)(dian)力(li)客戶(hu)，滿足(zu)廣大客戶(hu)經濟建(jian)設和生活用電(dian)(dian)(dian)(dian)(dian)的(de)(de)需要(yao)。充分(fen)考慮《電(dian)(dian)(dian)(dian)(dian)力(li)法》1995年(nian)制(zhi)定時的(de)(de)電(dian)(dian)(dian)(dian)(dian)力(li)行業發展狀況(kuang)和體(ti)(ti)制(zhi)背景，第四章“電(dian)(dian)(dian)(dian)(dian)力(li)供應與(yu)使用”中(zhong)的(de)(de)“供電(dian)(dian)(dian)(dian)(dian)”很(hen)明(ming)顯是(shi)(shi)(shi)指當時背景下配電(dian)(dian)(dian)(dian)(dian)企業的(de)(de)經營(ying)行為(wei)，既包(bao)含輸電(dian)(dian)(dian)(dian)(dian)、配電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，也涉及售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)。之所以售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)未明(ming)顯表述，是(shi)(shi)(shi)在(zai)當時電(dian)(dian)(dian)(dian)(dian)力(li)行業壟斷一體(ti)(ti)化(hua)的(de)(de)產業結構背景下，售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)還(huan)是(shi)(shi)(shi)一個隱性(xing)環(huan)節(jie)，并沒(mei)有(you)被(bei)認識到可以單獨存在(zai)。但在(zai)2015年(nian)“9號文(wen)(wen)”頒(ban)布后，按(an)照“管住中(zhong)間(jian)、放開兩(liang)頭”的(de)(de)體(ti)(ti)制(zhi)架(jia)構，很(hen)顯然售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)和配電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)已被(bei)區分(fen)開，所以，目(mu)前就有(you)必要(yao)重新定義供電(dian)(dian)(dian)(dian)(dian)的(de)(de)內涵。根據“9號文(wen)(wen)”精(jing)神，建(jian)議明(ming)確區分(fen)配電(dian)(dian)(dian)(dian)(dian)和售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，將供電(dian)(dian)(dian)(dian)(dian)定義為(wei)“在(zai)供電(dian)(dian)(dian)(dian)(dian)營(ying)業區范圍內的(de)(de)配電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)，承擔普遍服務(wu)(wu)(wu)(wu)責任(ren)以及未參與(yu)市場(chang)化(hua)購電(dian)(dian)(dian)(dian)(dian)用戶(hu)的(de)(de)售(shou)電(dian)(dian)(dian)(dian)(dian)業務(wu)(wu)(wu)(wu)”。

另外(wai)，2018年修訂的(de)(de)《電(dian)(dian)力法》沒有了(le)(le)跨省(sheng)和非(fei)跨省(sheng)供(gong)電(dian)(dian)營業(ye)區的(de)(de)區別表述(shu)，但并不(bu)能以此判(pan)斷它取消了(le)(le)跨省(sheng)的(de)(de)供(gong)電(dian)(dian)營業(ye)區。因(yin)為(wei)，如果(guo)供(gong)電(dian)(dian)業(ye)務(wu)明確定義為(wei)“配(pei)電(dian)(dian)”及其(qi)相關的(de)(de)普遍(bian)服(fu)務(wu)和非(fei)市(shi)場(chang)化售電(dian)(dian)，那么就沒有再強調跨省(sheng)供(gong)電(dian)(dian)營業(ye)區的(de)(de)必要(yao)性了(le)(le)。

共用和專用供電設施應嚴格區分

供(gong)電(dian)(dian)(dian)營業(ye)區(qu)制度的(de)核(he)心是供(gong)電(dian)(dian)(dian)業(ye)務專營屬性，《電(dian)(dian)(dian)力法》第(di)二十五條明確“一(yi)個(ge)(ge)供(gong)電(dian)(dian)(dian)營業(ye)區(qu)內(nei)只設(she)立一(yi)個(ge)(ge)供(gong)電(dian)(dian)(dian)營業(ye)機構”，《供(gong)電(dian)(dian)(dian)營業(ye)區(qu)劃分(fen)及(ji)管理(li)辦法》延續(xu)了這一(yi)表(biao)述。但(dan)事(shi)實上，一(yi)個(ge)(ge)供(gong)電(dian)(dian)(dian)營業(ye)區(qu)內(nei)或(huo)多或(huo)少存在(zai)工(gong)業(ye)園區(qu)或(huo)者(zhe)商業(ye)綜合體等(deng)諸多方式的(de)轉(zhuan)供(gong)電(dian)(dian)(dian)情況(kuang)，這些轉(zhuan)供(gong)電(dian)(dian)(dian)主體事(shi)實上也在(zai)履行供(gong)電(dian)(dian)(dian)功能。

近年來，國家(jia)出(chu)臺文件(jian)要(yao)求規(gui)范轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)，但供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)企業(ye)不(bu)(bu)可能收購或(huo)者以其他形(xing)式獲取這部分(fen)轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)資(zi)產，轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)行為依(yi)然(ran)會存在。僅依(yi)靠(kao)價格主(zhu)管部門治理轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)解(jie)決不(bu)(bu)了根(gen)本(ben)問題。堵不(bu)(bu)如疏，要(yao)從(cong)根(gen)本(ben)上(shang)(shang)解(jie)決轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)問題，首先須回答供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)企業(ye)是否還要(yao)承擔(dan)“名義(yi)上(shang)(shang)應該承擔(dan)但實(shi)際(ji)上(shang)(shang)不(bu)(bu)可能兌(dui)現”的責任，抑或(huo)是理性地區(qu)分(fen)實(shi)現供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)功(gong)能供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)設施的共用或(huo)專用屬性——供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)企業(ye)只(zhi)做共用供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)設施的投資(zi)經營，而包括轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)在內的用電(dian)(dian)(dian)(dian)(dian)(dian)側專用供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)設施則按照“誰使用、誰投資(zi)”的原則向(xiang)市場開放(fang)，通過合理回報和價格上(shang)(shang)限的原則，讓(rang)轉(zhuan)供(gong)電(dian)(dian)(dian)(dian)(dian)(dian)從(cong)灰色領(ling)域轉(zhuan)變(bian)成為合規(gui)公開經營。

供(gong)(gong)(gong)電(dian)(dian)企業(ye)(ye)(ye)(ye)(ye)只做共用功能的(de)(de)供(gong)(gong)(gong)電(dian)(dian)業(ye)(ye)(ye)(ye)(ye)務，事(shi)實上也是對壟斷企業(ye)(ye)(ye)(ye)(ye)經營范(fan)圍的(de)(de)一(yi)次法規性(xing)確認，對于(yu)減輕(qing)供(gong)(gong)(gong)電(dian)(dian)企業(ye)(ye)(ye)(ye)(ye)負擔，提高供(gong)(gong)(gong)電(dian)(dian)企業(ye)(ye)(ye)(ye)(ye)服務，加強供(gong)(gong)(gong)電(dian)(dian)企業(ye)(ye)(ye)(ye)(ye)監管(guan)都具(ju)有積極意義。壟斷約束一(yi)小(xiao)步，市場(chang)就發展一(yi)大(da)步。此舉也將(jiang)極大(da)激發社會(hui)資本投(tou)資專用配電(dian)(dian)業(ye)(ye)(ye)(ye)(ye)務的(de)(de)積極性(xing)，有利于(yu)放開用電(dian)(dian)側投(tou)資和服務市場(chang)，推動(dong)實現“放開兩頭(tou)”。

無證供電的監管空白要盡快彌補

現(xian)有(you)的(de)《供(gong)電(dian)(dian)營(ying)業(ye)(ye)區劃分及管(guan)理辦(ban)法(fa)》可以滿足主動申(shen)報供(gong)電(dian)(dian)營(ying)業(ye)(ye)區并取得《電(dian)(dian)力業(ye)(ye)務(wu)許可證(zheng)》情(qing)(qing)況的(de)監管(guan)，但不能解(jie)決(jue)經(jing)營(ying)者未(wei)主動申(shen)請供(gong)電(dian)(dian)營(ying)業(ye)(ye)區或取得《電(dian)(dian)力業(ye)(ye)務(wu)許可證(zheng)》且未(wei)能履(lv)行(xing)合格(ge)供(gong)電(dian)(dian)責任的(de)處置等情(qing)(qing)況。未(wei)取得電(dian)(dian)力業(ye)(ye)務(wu)許可證(zheng)的(de)無證(zheng)供(gong)電(dian)(dian)情(qing)(qing)況，如(ru)農村(cun)小水(shui)電(dian)(dian)自供(gong)區等歷史遺(yi)留問題，亟需在(zai)此(ci)次修訂《供(gong)電(dian)(dian)營(ying)業(ye)(ye)區劃分及管(guan)理辦(ban)法(fa)》中予以解(jie)決(jue)。

對(dui)于因歷史(shi)原因，未(wei)申(shen)(shen)請(qing)辦理(li)(li)或未(wei)取得(de)《電(dian)力(li)(li)業(ye)務(wu)許(xu)可(ke)證》而(er)事實(shi)上(shang)供(gong)電(dian)的(de)情(qing)況，修訂稿(gao)中應(ying)(ying)明(ming)(ming)確要求(qiu)其主動申(shen)(shen)請(qing)供(gong)電(dian)營業(ye)區(qu)劃分，并辦理(li)(li)《電(dian)力(li)(li)業(ye)務(wu)許(xu)可(ke)證》。同(tong)時(shi)，應(ying)(ying)彌補監(jian)管(guan)空白，建議國(guo)家能源局派出監(jian)管(guan)機(ji)構(gou)加(jia)強對(dui)未(wei)取得(de)《電(dian)力(li)(li)業(ye)務(wu)許(xu)可(ke)證》但(dan)事實(shi)供(gong)電(dian)情(qing)況的(de)有(you)效監(jian)管(guan)，通過(guo)加(jia)強無證供(gong)電(dian)和(he)(he)不(bu)合格供(gong)電(dian)的(de)監(jian)督，要求(qiu)其在規(gui)定時(shi)間(jian)內進(jin)行整(zheng)改，對(dui)在規(gui)定時(shi)間(jian)內不(bu)能實(shi)現合格供(gong)電(dian)的(de)主體，應(ying)(ying)完善(shan)監(jian)管(guan)規(gui)則(ze)，勒令(ling)其縮減供(gong)電(dian)營業(ye)區(qu)或者退出。建議國(guo)家能源局進(jin)一(yi)步研究明(ming)(ming)確經營者的(de)申(shen)(shen)請(qing)時(shi)限和(he)(he)監(jian)管(guan)部(bu)門的(de)工作時(shi)限，包括以上(shang)情(qing)況縮減供(gong)電(dian)營業(ye)區(qu)后資產處(chu)理(li)(li)等規(gui)則(ze)。

管理權限調整不能違背“放管服”精神

2018年修(xiu)訂前的(de)《電(dian)(dian)力(li)法(fa)》第(di)二(er)十五(wu)條明確(que)，各層(ceng)級(ji)(ji)供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)區經(jing)審(shen)查(cha)批準后(hou)，由相應層(ceng)級(ji)(ji)的(de)電(dian)(dian)力(li)管(guan)(guan)理部(bu)門(men)發給(gei)《供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)許(xu)(xu)(xu)可(ke)(ke)(ke)證》。2018年修(xiu)訂后(hou)的(de)《電(dian)(dian)力(li)法(fa)》第(di)二(er)十五(wu)條對(dui)此表(biao)述(shu)依然(ran)不變，“……電(dian)(dian)力(li)管(guan)(guan)理部(bu)門(men)依據職責(ze)和管(guan)(guan)理權限，會(hui)同同級(ji)(ji)有關部(bu)門(men)審(shen)查(cha)批準后(hou)，發給(gei)《電(dian)(dian)力(li)業(ye)(ye)(ye)(ye)務許(xu)(xu)(xu)可(ke)(ke)(ke)證》”。1996年原電(dian)(dian)力(li)工業(ye)(ye)(ye)(ye)部(bu)頒(ban)布《供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)區劃(hua)(hua)分(fen)及管(guan)(guan)理辦(ban)法(fa)》也遵循(xun)這個原則，但2019年8月《供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)區劃(hua)(hua)分(fen)及管(guan)(guan)理辦(ban)法(fa)（征求意(yi)見(jian)稿）》第(di)九條中的(de)表(biao)述(shu)卻發生明顯變化——“取(qu)得(de)供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)區劃(hua)(hua)分(fen)意(yi)見(jian)的(de)企(qi)業(ye)(ye)(ye)(ye)應按(an)照有關規定向國家能源局派出(chu)機構申請(qing)《電(dian)(dian)力(li)業(ye)(ye)(ye)(ye)務許(xu)(xu)(xu)可(ke)(ke)(ke)證》。供電(dian)(dian)營(ying)(ying)業(ye)(ye)(ye)(ye)區在《電(dian)(dian)力(li)業(ye)(ye)(ye)(ye)務許(xu)(xu)(xu)可(ke)(ke)(ke)證》中載(zai)明后(hou)方可(ke)(ke)(ke)生效。”

換言之(zhi)，從《供電(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)許可證》調(diao)整(zheng)為(wei)(wei)《電(dian)(dian)(dian)(dian)力(li)業(ye)務許可證》，實質上是(shi)要(yao)改(gai)變供電(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)區的(de)管理權限，即(ji)從省地(di)方政府電(dian)(dian)(dian)(dian)力(li)管理部門調(diao)整(zheng)為(wei)(wei)國家能源局派出機構。但(dan)很明(ming)顯，這(zhe)與《電(dian)(dian)(dian)(dian)力(li)法》是(shi)不一致的(de)，也與行政審(shen)批和事(shi)后監管分離的(de)原(yuan)則不符，無(wu)形中增(zeng)加了(le)供電(dian)(dian)(dian)(dian)企業(ye)申請許可的(de)環節，與國務院“放管服”的(de)精神(shen)不符。這(zhe)項行政許可權力(li)在(zai)中央和地(di)方之(zhi)間(jian)的(de)調(diao)整(zheng)，僅僅通(tong)過《供電(dian)(dian)(dian)(dian)營(ying)(ying)業(ye)區劃分及管理辦法》修訂這(zhe)個層級來操作是(shi)不妥的(de)。