城镇污水处理服务市场化改革成效评价

发布时间：2018-07-25 07:33

【摘要】：污水处理服务是一项基本公共服务,其行业的发展对于实现水资源保护、衔接水的自然系统和社会系统具有关键作用。中共十八大报告提出了“生态文明建设”的重要议题,也进一步对污水处理服务行业提出了新的挑战、创造了新的机遇。我国城镇污水处理服务市场化改革开始于2002年,以解决城镇市政服务发展资金瓶颈以及提高市政服务水平满足社会公众需求为根本目的,同时扶持污水处理服务行业持续健康发展。污水处理服务市场化改革的本质内涵在于市场竞争机制的引入,即在污水处理设施投资、建设以及运营环节引入竞争机制,而不是强调污水处理设施的私人享有,市场化改革并没有改变污水处理服务准公共产品的本质,而是更加强调政府的最终供给责任和对竞争机制作用的监督责任。本研究以公共物品以及有效竞争理论为依据,准确把握城镇污水处理服务市场化改革的内涵,梳理该行业的发展现状及所面临的困境；基于此从服务能力和服务效率两个方面对改革成效进行细致评价,并以河南省污水处理服务行业改革所取得的成效作为案例进行评价研究；最后,在案例研究的基础上对我国城镇污水处理服务行业改革成效做进一步地综合评价,据此提出深化我国城镇污水处理服务市场化改革的政策性建议。主要研究结论包括： (1)服务能力方面,城镇人均污水处理服务得到了显著提高,服务覆盖面积不断扩大；区域角度,东、中、西、东北各区域均较快增长,且差距显著缩小,改革促进了区域均衡发展；顶层设计对于减排工作的重视是污水处理水质标准显著提高的外在动力,市场化是实现城镇污水处理设施出水水质标准提高的有效手段；城镇化率不断提高背景下,服务需求量不断增长情况下污水处理行业实际供给能力显著提高。 (2)服务效率方面,污水处理设施的运行负荷率得到了平稳提高,但不同区域城市之间的差异较大,且仍然具有通过提高负荷率来满足污水处理需求的较大空间,行业运营管理专业化、规范化水平偏低；污染物去除方面,污水处理设施数量建设、运营市场化程度与TN去除率之间具有基本一致的变动趋势,但与COD去除率之间没有显著的趋势变动关系,污染物减排效果有待改善；污水处理服务暂无市场价格形成机制,但污水处理费用价格在进行市场化改革之后呈现明显的涨幅,企业成本控制动机和能力均得到增强,政府购买服务价格下降；除污水处理厂自身条件以及客观区位环境因素外,污水处理行业市场化改革中的特许经营融资建设模式对于实现较高的减排效率具有决定性作用。 (3)河南省污水处理服务行业市场化改革的成效包括：单位人均污水处理能力快速增长、污水处理项目排放标准显著提高、城镇污水处理率稳定提升、企业运营效率提高,冗员减少、污水处理设施运行负荷率与全国持平。 (4)应从加强准入监管与过程监管；完善产权制度改革,实现系统化经营；加快污水处理费价格机制形成以及完善配套措施等方面深化城镇污水处理服务行业的市场化改革。
[Abstract]:The sewage treatment service is a basic public service. The development of its industry plays a key role in the protection of water resources, the natural system and the social system of connecting water. The eighteen major reports of the Communist Party of China have put forward the important issues of "ecological civilization construction", and also put forward new challenges to the sewage treatment service industry and create a new machine. The market-oriented reform of urban sewage treatment service in China began in 2002, in order to solve the capital bottleneck of urban municipal service development and to improve the municipal service level to meet the social public needs, and to support the sustainable and healthy development of the sewage treatment service industry. The essential connotation of the market-oriented reform of sewage treatment service lies in the market competition. The introduction of the dispute mechanism is to introduce the competition mechanism in the investment, construction and operation of the sewage treatment facilities, instead of emphasizing the private enjoyment of the sewage treatment facilities. The market-oriented reform does not change the essence of the quasi public products of the sewage treatment service, but more emphasis on the ultimate responsibility of the government and the supervision responsibility for the role of the competition mechanism. On the basis of public goods and effective competition theory, this study accurately grasps the connotation of the market-oriented reform of urban sewage treatment services, combs the current situation of the development of the industry and the difficulties faced by it. Based on this, this paper makes a detailed evaluation on the effectiveness of the reform from two aspects of service capacity and service efficiency, and takes the sewage treatment service industry in Henan province. The results of the reform are evaluated as a case. Finally, on the basis of the case study, the effectiveness of the reform of the urban sewage treatment service industry in China is further evaluated. Accordingly, the policy suggestions for deepening the market-oriented reform of urban sewage treatment services in China are put forward. The main conclusions include:
(1) in terms of service capacity, the urban per capita sewage treatment service has been significantly improved and the coverage area of the service is expanding; the regional angle, the East, the middle, the West and the northeast regions are increasing rapidly, and the gap is narrowing significantly. The reform promotes the balanced development of the region; the top level design for the emission reduction work is a significant improvement in the wastewater treatment water quality standard. The external driving force and marketization are the effective means to improve the water quality standard of the urban sewage treatment facilities. Under the continuous improvement of the urbanization rate, the actual supply capacity of the sewage treatment industry is greatly increased under the continuous increase of the service demand.
(2) in terms of service efficiency, the operating load rate of sewage treatment facilities has been steadily improved, but the difference between cities in different regions is larger, and still has a larger space to meet the demand of sewage treatment by increasing the load rate. The industry operation management is specialized, the standard level is low; the pollutant removal, sewage treatment facilities are number. There is a basic consistent change trend between the quantity construction, the operation marketization degree and the TN removal rate, but there is no significant trend relationship with the COD removal rate, and the effect of pollutant emission reduction needs to be improved; the sewage treatment service has no market price formation mechanism, but the price of sewage treatment fee is obvious after the market reform. In addition, the motivation and ability of enterprise cost control are enhanced and the price of government purchase service is reduced. Besides the conditions of the sewage treatment plant and the factors of the objective location, the mode of concession financing construction in the market reform of the sewage treatment industry has a decisive effect on the realization of the higher efficiency of reducing the discharge.
(3) the results of the market-oriented reform of Henan sewage treatment service industry include: the rapid growth of per capita sewage disposal capacity per capita, the significant improvement of the discharge standard of sewage treatment projects, the stabilization and promotion of urban sewage treatment rate, the improvement of the operation efficiency of the enterprises, the reduction of redundant personnel, and the balance of the operating load rate of sewage treatment facilities with the country.
(4) the market reform of urban sewage treatment service industry should be deepened by strengthening the admittance supervision and process supervision, perfecting the reform of the property right system, realizing the systematic management, speeding up the formation of the price mechanism of the sewage treatment fee and perfecting the supporting measures.
【学位授予单位】：福建农林大学
【学位级别】：硕士
【学位授予年份】：2014
【分类号】：X324;F299.24

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