省网改革的山东样本

Shandong sample of provincial network reform

《山东省天然气管道运输价格管理办法》提高了管道运输价格监管的科学性、规范性和透明度。

The "Shandong Province Natural Gas Pipeline Transportation Price Management Measures" improves the scientificity, standardization and transparency of pipeline transportation price supervision.

8月13日，山东省发展和改革委员会印发了《山东省天然气管道运输价格管理办法》(以下简称《管理办法》)。这是首份响应国家发展改革委、国家能源局8月1日印发的《关于完善省内天然气管道运输价格机制 促进行业高质量发展的指导意见》(以下简称《指导意见》)的地方文件，提供了省内天然气管道运输价格改革的样本。

On August 13, the Shandong Provincial Development and Reform Commission issued the Measures for the Administration of Natural Gas Pipeline Transportation Prices in Shandong Province (hereinafter referred to as the Measures). As the first local document in response to the Guiding Opinions on Improving the Price Mechanism of Provincial Natural Gas Pipeline Transportation and Promoting the High-Quality Development of the Industry (hereinafter referred to as the Guiding Opinions) jointly issued by the National Development and Reform Commission and the National Energy Administration on August 1, it has set a benchmark for the reform of provincial natural gas pipeline transportation prices.

积极响应

Respond positively

《管理办法》是对党和国家价格治理新部署的积极响应。近段时间来，党和国家对价格治理做出了新的部署。例如，4月2日，中共中央办公厅、国务院办公厅印发了《关于完善价格治理机制的意见》。涉及天然气管输的有“营造竞争有序市场环境。废止妨碍全国统一大市场建设和公平竞争的价格政策，防止政府对价格形成的不当干预……加强输配电、天然气管道运输等网络型自然垄断环节价格监管”。再例如，7月24日，国家发展改革委、市场监管总局发布《中华人民共和国价格法修正草案(征求意见稿)》，其中规定“政府指导价、政府定价水平，可以通过制定作价办法、规则等定价机制确定”，确认价格治理可以从“政府制定价格水平”转向“政府制定价格机制，市场形成价格水平”，更好适应市场变化。

The Measures is an active response to the new arrangements for price governance by the Party and the country. Recently, the Party and the country have made new deployments in price governance. For example, on April 2, the General Office of the Central Committee of the Communist Party of China and the General Office of the State Council issued the Opinions on Improving the Price Governance Mechanism. Its content related to natural gas pipeline transportation includes: "Create an orderly competitive market environment. Abolish price policies that hinder the construction of a unified national market and fair competition, prevent improper government intervention in price formation... Strengthen price supervision over network-based natural monopoly sectors such as power transmission and distribution, and natural gas pipeline transportation."Another example is that on July 24, the National Development and Reform Commission and the State Administration for Market Regulation released the Draft Amendment to the Price Law of the People's Republic of China (Consultation Draft). It stipulates that "the levels of government-guided prices and government-set prices may be determined through pricing mechanisms such as formulating pricing methods and rules", confirming that price governance can shift from "the government setting price levels" to "the government formulating pricing mechanisms and the market determining price levels", so as to better adapt to market changes.

《管理办法》顺应深化天然气体制机制改革大势。2017年以来，我国油气体制改革加快推进。2019年国家管网集团组建成立后，总里程超10万千米的国家干线管网实现运销分离与公平开放，基于服务成本法的天然气管输价格形成机制也普遍建立，跨省管输价格实现从“一线一价”到“一企一价”再到“一区一价”的跨越，管网运营机制改革目标初步实现。但是，互联互通不足、管网层级多、各级管网关系复杂、应急协同不畅、重复建设等问题仍然存在，在省网环节尤为明显，制约了“全国一张网”高效运行。

The Measures conforms to the general trend of deepening the reform of the natural gas system and mechanism. Since 2017, the reform of China's oil and gas system has been accelerated. After the establishment of the China National Petroleum Pipeline Network Group in 2019, the national trunk pipeline network with a total mileage of over 100,000 kilometers has realized the separation of transportation and sales as well as fair and open access. A natural gas pipeline transportation pricing mechanism based on the service cost method has also been generally established. The cross-provincial pipeline transportation pricing has achieved the leap from the "one pipeline, one price" model to "one enterprise, one price" and then to "one region, one price", marking the initial achievement of the reform goals for the pipeline network operation mechanism.However, problems such as insufficient interconnection, multiple pipeline network tiers, complicated relationships between pipeline networks at different levels, inadequate emergency coordination, and redundant construction still persist. These issues are particularly prominent at the provincial pipeline network level, hindering the efficient operation of the "unified national pipeline network".

《管理办法》是山东省天然气行业高质量发展的现实要求。截至2024年，山东省天然气管道长度达到1万千米以上，但管道主体多且管输价格复杂。除省内主干管道外，天然气管输定价多种模式并存。复杂的管网情况制约了山东省天然气行业的高质量发展。一方面管道主体互相竞争、重复建设、各自为战，对外开放程度不够，使得管网运行效率低，统一调度和应急保供能力受限。另一方面出于自身利益考量，管输层层收费和不合理收费多，抬高终端用气成本。

The "Management Measures" are a realistic requirement for the high-quality development of the natural gas industry in Shandong Province. As of 2024, the length of natural gas pipelines in Shandong Province will reach more than 10,000 kilometers, but there are many pipeline main bodies and pipeline transportation prices are complicated. In addition to the main pipelines in the province, multiple models of natural gas pipeline transmission pricing coexist. The complex pipeline network situation restricts the high-quality development of the natural gas industry in Shandong Province. On the one hand, pipeline entities compete with each other, repeat construction, work independently, and are not open enough to the outside world, which makes the operation efficiency of the pipeline network low and the ability of unified dispatching and emergency supply is limited. On the other hand, out of self-interest considerations, there are many layers of charges and unreasonable charges for pipeline transmission, which raises the cost of terminal gas consumption.

从定标准向定机制转变

From fixed standards to fixed mechanisms

在《管理办法》出台前，《山东省天然气管道运输价格管理暂行办法》对天然气管输价格采用政府定价的模式。在内容中主要规定了管输定价的核价范围、计算方法、参数内涵、约束条件和定调价流程等，倾向于制定统一的、明确的规则或参数，用来作为价格形成或调整的依据，更多的是一种定标准的逻辑。

Prior to the issuance of the Measures, the Interim Measures for the Administration of Natural Gas Pipeline Transportation Prices in Shandong Province adopted a government-set pricing model for natural gas pipeline transportation prices. Its contents mainly specified the scope, calculation methods, parameter connotations, constraint conditions, and pricing adjustment procedures for pipeline transportation cost verification, and tended to formulate unified and clear rules or parameters to serve as the basis for price formation or adjustment, which was more of a standard-setting logic.

《管理办法》倾向于规定价格如何制定、调整、传导的运作方式和程序，形成一套系统的运行规则和制度安排，更多的是在政策层面明确价格形成机制。例如，天然气管输价格采用政府指导价的模式，由省价格主管部门核定最高限价，具体价格水平则由市场决定。引入标杆价格机制，参与核算的企业执行标杆价格，其他企业执行折算价格;无代表性企业、无法计算标杆价格的地区，按照相邻市域或其他各市标杆价格的平均水平确定，以促进行业优胜劣汰。建立天然气联运价格确认和收入分配机制。通过不同管道经营企业投资建设管道接续供气的，按不同类型管道的运输价格叠加。联运企业结算运输费时按实际运输距离的比例分摊，同时规定联运气量的路由和各管线对应的运距应在天然气销售合同中载明，在政策层面限制层层加价并提高透明度。

The Measures tends to specify the operational methods and procedures for how pipeline transportation prices are formulated, adjusted, and transmitted, forming a set of systematic operating rules and institutional arrangements. It is more focused on clarifying the price formation mechanism at the policy level.For instance, a government-guided pricing model is adopted for natural gas pipeline transportation prices: the provincial competent pricing department verifies and sets the maximum price limit, while the specific price level is determined by the market. A benchmark pricing mechanism is introduced, whereby enterprises participating in cost verification implement the benchmark price, and other enterprises adopt the converted price. For regions with no representative enterprises or where benchmark prices cannot be calculated, the price shall be determined based on the average benchmark price of adjacent city-level regions or other cities, so as to facilitate the survival of the fittest in the industry.A mechanism for confirming the combined transportation prices of natural gas and distributing revenues is established. Where continuous gas supply is achieved through pipelines invested in and constructed by different pipeline operating enterprises, the transportation price shall be the sum of the prices of the different types of pipelines involved. When joint transportation enterprises settle transportation fees, the fees shall be apportioned according to the proportion of the actual transportation distance. Meanwhile, it is stipulated that the route of the jointly transported gas volume and the corresponding transportation distance of each pipeline shall be specified in the natural gas sales contract, which restricts multi-layer price markup and enhances transparency at the policy level.

强化省级统筹，因地制宜

Strengthen provincial overall planning and adapt measures to local conditions

《指导意见》明确提出，“省内天然气管道运输价格应当实行统一定价模式，由‘一线一价’‘一企一价’向分区定价或全省统一价格过渡，实现与跨省天然气管道运输价格机制有效衔接，助力形成‘全国一张网’”。而在具体操作上，《指导意见》更多的是原则性意见，考虑了各省市的实际情况，预留了政策空间。《管理办法》在充分研究山东省现有天然气管网运营模式、参数、路由、成本费用的基础上，提出了一系列创新。

The "Guiding Opinions" clearly stated that "the provincial natural gas pipeline transportation price should implement a unified pricing model, transitioning from'one price for one line 'and'one price for one enterprise' to regional pricing or unified price for the whole province, so as to realize the effective connection with the inter-provincial natural gas pipeline transportation price mechanism and help form a'national network '". In terms of specific operation, the Guiding Opinions are more principled opinions, taking into account the actual situation of various provinces and cities and reserving policy space. The "Administrative Measures" propose a series of innovations based on fully studying the operation mode, parameters, routing, and costs of the existing natural gas pipeline network in Shandong Province.

例如，在定价模式方面，提出分类定价，省内主干管道、跨市管道和市域内管道分别实行“同网同价”“同企同价”“同市同价”，结合当前价格复杂的实际，逐步过渡。在参数设置方面，准许收益率参考10年期国债收益率加4个百分点，并结合管道建设需要、用户承受能力等因素确定，最高不超过8%。在过渡期政策方面，对于价格调整幅度过大的存量管道经营企业，合理设置不超过3年的过渡期限，过渡期内执行过渡期价格。同时，明确省价格主管部门可根据管道经营企业实际运行情况和用户承受能力等，将调整幅度在不同监管周期内平滑处理，应调未调产生的收入差额分摊到未来年度进行补偿或扣减。此外，明确了海底管道、应纳入城镇燃气配气管网定价的输气管道、专用直供管道以及“背靠背”分输站等供气环节的价格管理要求。

For example, in terms of pricing models, classified pricing is proposed. Provincial trunk pipelines, intercity pipelines and intra-city pipelines shall implement the principles of "one network, one price", "one enterprise, one price" and "one city, one price" respectively, with a gradual transition in light of the current complex pricing reality.In terms of parameter setting, the allowed rate of return shall be determined with reference to the 10-year treasury bond yield plus 4 percentage points, and adjusted by taking into account factors such as pipeline construction needs and user affordability, with a cap of 8%.In terms of transitional policies, for existing pipeline operating enterprises facing excessively large price adjustments, a reasonable transition period of up to 3 years shall be set, during which the transitional price shall apply. Meanwhile, it is clarified that the provincial competent pricing department may smooth out the adjustment range across different regulatory cycles based on the actual operation of pipeline enterprises and user affordability. The income gap arising from the unimplemented price adjustments shall be amortized over future years for compensation or deduction.In addition, the document specifies the price management requirements for gas supply links such as submarine pipelines, gas transmission pipelines that should be included in the pricing of urban gas distribution networks, dedicated direct-supply pipelines, and back-to-back gas offtake stations.

带来多方面影响

Bring multiple impacts

《管理办法》作为《指导意见》的首份地方响应文件，其影响是多方面的。

As the first local response document of the Guiding Opinions, the Administrative Measures have multifaceted influences.

在国家层面，提供了一份省网改革的标准样本。《管理办法》充分结合《指导意见》和山东省网实际情况，兼顾改革目标和平稳过渡需求，形成了一套系统的价格形成、过渡、调整和监管机制，为其他地区省内管输价格优化和“一张网”建设提供了参考。

At the national level, a standard sample of provincial network reform is provided. The "Administrative Measures" fully combine the "Guiding Opinions" and the actual situation of Shandong Provincial Network, taking into account the reform goals and the needs of smooth transition, and form a systematic price formation, transition, adjustment and supervision mechanism, which provides a reference for the optimization of pipeline transmission prices in other regions and the construction of "one network".

在山东省层面，强化了省级统筹，综合制定最高限价减少了逐一核价的工作量，明确的联运价格机制便于区域管网协同管理，健全的处罚措施和特殊情形管理规定补充了监管工具，同时相应地提高了政府价格治理能力的要求。

At the level of Shandong Province, provincial coordination has been strengthened, and the comprehensive formulation of maximum price limits has reduced the workload of price verification one by one. A clear intermodal price mechanism facilitates the coordinated management of regional pipeline networks. Sound penalty measures and special circumstances management regulations have supplemented regulatory tools. At the same time, the requirements for government price governance capabilities have been accordingly improved.

在管输企业层面，促进行业优胜劣汰。除了跨市管道暂行的“同企同价”模式外，“同网同价”“同市同价”“标杆价格”“分区定价”等模式均偏向于成本管理优秀和输气量较好的企业，让其能够获得管输定价的主动权，也能获得较高收益。对于经营效益较差的企业，过渡期政策虽然能够缓冲短期影响，但平滑处理机制会增加缓冲期后的经营压力，倒逼企业控制成本、提质增效。长远来看，经营效益较好的企业仍具有比较优势，最终导向优胜劣汰和资源整合。

At the level of pipeline transportation enterprises, the Measures promotes the survival of the fittest in the industry. Except for the interim "one enterprise, one price" model applicable to intercity pipelines, other pricing models including "one network, one price", "one city, one price", benchmark pricing and zonal pricing are all biased toward enterprises with sound cost management and strong gas transmission volumes. These enterprises are thus granted the initiative in pipeline transportation pricing and are able to secure higher returns.For enterprises with poor operating performance, although the transitional policies can cushion short-term impacts, the smoothing mechanism will increase their operational pressure after the buffer period, forcing them to control costs, improve quality and enhance efficiency. In the long run, enterprises with sound operating performance will still maintain comparative advantages, ultimately leading to the survival of the fittest and resource integration across the industry.

在管网用户层面，明晰了管输环节成本，一方面确定了管输层级，避免层层加价和不合理收费，增加了用气透明度和公平性，便于核算成本，激发管道气用户积极性;另一方面管输环节对终端用户气源选择和资源商市场开发的约束力减弱，促进天然气市场的双向选择和有效竞争，推进省网高效集输。

At the level of pipeline network users, the cost of pipeline transmission links is clarified. On the one hand, the level of pipeline transmission is determined to avoid price increases and unreasonable charges at different levels, increase the transparency and fairness of gas consumption, facilitate cost accounting and stimulate the enthusiasm of pipeline gas users; On the other hand, the binding force of the pipeline transmission link on end-user gas source selection and resource provider market development has weakened, promoting two-way selection and effective competition in the natural gas market, and promoting efficient gathering and transmission of the provincial network.

责任编辑：陆晓如

Editor in charge: Lu Xiaoru