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引言(yan)

農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)是重(zhong)要的(de)(de)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)水(shui)(shui)(shui)利基(ji)(ji)礎設(she)(she)施，是我國新(xin)時期(qi)(qi)實(shi)(shi)施的(de)(de)新(xin)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)建設(she)(she)和(he)鄉(xiang)村(cun)(cun)(cun)振興戰(zhan)略(lve)的(de)(de)關(guan)鍵環節和(he)重(zhong)要基(ji)(ji)礎，是城(cheng)鄉(xiang)基(ji)(ji)本公共(gong)服務均等(deng)化(hua)的(de)(de)主要內(nei)容(rong)。新(xin)中國成立以來，黨和(he)政府高度重(zhong)視農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)工作(zuo)。縱觀60多年來的(de)(de)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)發展歷程，從早期(qi)(qi)的(de)(de)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)飲水(shui)(shui)(shui)解困(kun)、飲水(shui)(shui)(shui)安全到(dao)鞏固提升(sheng)，從農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)人飲到(dao)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)，農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)的(de)(de)目標(biao)、重(zhong)點(dian)、內(nei)容(rong)等(deng)方面都發生了較大變化(hua)，目前(qian)，我國農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)長期(qi)(qi)存在(zai)(zai)的(de)(de)飲水(shui)(shui)(shui)難和(he)飲水(shui)(shui)(shui)不安全問題已基(ji)(ji)本解決，同時形成了多種形式的(de)(de)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)設(she)(she)施建設(she)(she)運營(ying)模式。與過去相(xiang)比(bi)，農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)已發生較大改觀；與發展相(xiang)比(bi)，農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)短板問題仍然較為突(tu)出，總體水(shui)(shui)(shui)平與城(cheng)市供(gong)(gong)水(shui)(shui)(shui)相(xiang)比(bi)還(huan)有較大差距。面對變化(hua)和(he)發展的(de)(de)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)社會(hui)經濟環境，解決當(dang)前(qian)農(nong)(nong)(nong)(nong)村(cun)(cun)(cun)供(gong)(gong)水(shui)(shui)(shui)基(ji)(ji)礎設(she)(she)施建設(she)(she)和(he)服務存在(zai)(zai)的(de)(de)投(tou)資、標(biao)準、長效(xiao)機制等(deng)現實(shi)(shi)問題，實(shi)(shi)施城(cheng)鄉(xiang)供(gong)(gong)水(shui)(shui)(shui)一體化(hua)發展戰(zhan)略(lve)無疑具(ju)有重(zhong)要的(de)(de)現實(shi)(shi)意義(yi)。

盡管當前(qian)我(wo)國城(cheng)市化(hua)進(jin)程尚(shang)在進(jin)行中，基礎設施建設也(ye)尚(shang)未達到完善的(de)水平，但總(zong)體上，粗放(fang)發展模(mo)式(shi)已經(jing)過去。與我(wo)國經(jing)濟發展相同，在城(cheng)鄉基本公共服務(wu)均等(deng)化(hua)發展趨勢下，農村供(gong)水也(ye)面臨著從粗放(fang)到質量的(de)轉型升(sheng)級，其中，城(cheng)鄉一(yi)體化(hua)模(mo)式(shi)有(you)利于消除(chu)當下突(tu)出的(de)“二元”結構(gou)問題。

城(cheng)鄉(xiang)(xiang)供(gong)水(shui)(shui)(shui)(shui)(shui)一(yi)(yi)體化(hua)(hua)(hua)發展(zhan)，就(jiu)是通(tong)過(guo)統籌(chou)謀劃、優化(hua)(hua)(hua)布局和創新機制(zhi)，打破“一(yi)(yi)地一(yi)(yi)水(shui)(shui)(shui)(shui)(shui)”等(deng)傳統農村(cun)供(gong)水(shui)(shui)(shui)(shui)(shui)方式的(de)弊端，通(tong)過(guo)城(cheng)市管網(wang)延伸、區域(yu)供(gong)水(shui)(shui)(shui)(shui)(shui)互通(tong)、提(ti)高鄉(xiang)(xiang)村(cun)供(gong)水(shui)(shui)(shui)(shui)(shui)標準等(deng)措(cuo)施(shi)，大力改善(shan)農村(cun)供(gong)水(shui)(shui)(shui)(shui)(shui)狀況，著力解決(jue)城(cheng)鄉(xiang)(xiang)基本公(gong)共(gong)服(fu)務均(jun)等(deng)化(hua)(hua)(hua)存在(zai)(zai)的(de)顯著差(cha)距，實現農村(cun)供(gong)水(shui)(shui)(shui)(shui)(shui)與城(cheng)鎮(zhen)供(gong)水(shui)(shui)(shui)(shui)(shui)在(zai)(zai)管理、服(fu)務、水(shui)(shui)(shui)(shui)(shui)質、水(shui)(shui)(shui)(shui)(shui)價等(deng)方面同標準，為滿足人民群眾(zhong)對美好生活(huo)的(de)向往提(ti)供(gong)堅(jian)實基礎。

以(yi)城(cheng)鄉供(gong)(gong)(gong)水(shui)(shui)(shui)基礎設(she)施(shi)(shi)均等(deng)化(hua)(hua)(hua)為導向(xiang)，堅持“城(cheng)鄉一(yi)(yi)體(ti)(ti)、原水(shui)(shui)(shui)統(tong)(tong)籌、資源整(zheng)合(he)(he)、規模發展、因地(di)施(shi)(shi)策、專業運營、優質(zhi)(zhi)服務”的(de)總體(ti)(ti)思路，綜合(he)(he)考慮地(di)區自然地(di)理(li)條件、社會經濟狀(zhuang)況(kuang)(kuang)以(yi)及供(gong)(gong)(gong)水(shui)(shui)(shui)設(she)施(shi)(shi)基礎狀(zhuang)況(kuang)(kuang)等(deng)因素，對(dui)水(shui)(shui)(shui)源進行統(tong)(tong)一(yi)(yi)高(gao)效、統(tong)(tong)籌配置，優化(hua)(hua)(hua)城(cheng)鄉一(yi)(yi)體(ti)(ti)化(hua)(hua)(hua)供(gong)(gong)(gong)水(shui)(shui)(shui)布局，采用“延伸（城(cheng)市(shi)(shi)供(gong)(gong)(gong)水(shui)(shui)(shui)管(guan)網(wang)(wang)）、聯網(wang)(wang)（聯結主干供(gong)(gong)(gong)水(shui)(shui)(shui)管(guan)線(xian)）、整(zheng)合(he)(he)（整(zheng)合(he)(he)農(nong)村供(gong)(gong)(gong)水(shui)(shui)(shui)管(guan)網(wang)(wang)）、提(ti)標(biao)(biao)（提(ti)升(sheng)提(ti)質(zhi)(zhi)農(nong)村供(gong)(gong)(gong)水(shui)(shui)(shui)工程）”等(deng)方式，大力改善農(nong)村供(gong)(gong)(gong)水(shui)(shui)(shui)狀(zhuang)況(kuang)(kuang)。充(chong)分發揮市(shi)(shi)場(chang)機制的(de)優化(hua)(hua)(hua)和(he)(he)積極作用，強化(hua)(hua)(hua)市(shi)(shi)場(chang)主體(ti)(ti)建設(she)，創(chuang)新投融資機制，完善運營管(guan)理(li)體(ti)(ti)制，提(ti)升(sheng)供(gong)(gong)(gong)水(shui)(shui)(shui)經營管(guan)理(li)水(shui)(shui)(shui)平，提(ti)高(gao)經營效益。構建順應社會發展和(he)(he)新時代(dai)要求的(de)規模化(hua)(hua)(hua)、集約化(hua)(hua)(hua)、同(tong)(tong)標(biao)(biao)準的(de)城(cheng)鄉供(gong)(gong)(gong)水(shui)(shui)(shui)體(ti)(ti)系，實現城(cheng)鄉供(gong)(gong)(gong)水(shui)(shui)(shui)同(tong)(tong)質(zhi)(zhi)、同(tong)(tong)標(biao)(biao)準、同(tong)(tong)服務、同(tong)(tong)管(guan)理(li)的(de)一(yi)(yi)體(ti)(ti)化(hua)(hua)(hua)管(guan)理(li)目標(biao)(biao)。

結合區域(yu)社(she)會經濟概(gai)況、自然條(tiao)件及人口分(fen)布特點，以供(gong)(gong)水(shui)(shui)水(shui)(shui)源(yuan)、重點水(shui)(shui)廠為(wei)(wei)依托，優化輸(shu)水(shui)(shui)線(xian)路、配水(shui)(shui)管網，合理確定城鄉一(yi)體化供(gong)(gong)水(shui)(shui)模(mo)(mo)式(shi)(shi)，將農村分(fen)散(san)的、獨立(li)的供(gong)(gong)水(shui)(shui)模(mo)(mo)式(shi)(shi)轉變(bian)為(wei)(wei)集中(zhong)的、聯(lian)網的、現代(dai)化的供(gong)(gong)水(shui)(shui)模(mo)(mo)式(shi)(shi)，高(gao)質量滿足(zu)城鄉人民生活的需要(yao)和(he)農村社(she)會經濟發展的需求。

打(da)破“一地(di)一水(shui)(shui)”供(gong)(gong)水(shui)(shui)模式，綜合考慮區域水(shui)(shui)源(yuan)情況，對水(shui)(shui)資源(yuan)進行高效配置(zhi)，實施原(yuan)水(shui)(shui)統籌，建立城鄉一體(ti)化的原(yuan)水(shui)(shui)供(gong)(gong)水(shui)(shui)格局，通(tong)(tong)過(guo)原(yuan)水(shui)(shui)聯通(tong)(tong)就近供(gong)(gong)水(shui)(shui)，互為(wei)備用，提(ti)高水(shui)(shui)源(yuan)的安全(quan)保障。

充分考慮(lv)水(shui)(shui)廠(chang)運(yun)營的(de)規模(mo)經(jing)(jing)濟(ji)與(yu)運(yun)行優化(hua)，對(dui)水(shui)(shui)廠(chang)進行高效配置，淘汰工藝落后(hou)、能耗大、水(shui)(shui)質水(shui)(shui)量保(bao)證率(lv)低(di)的(de)小規模(mo)水(shui)(shui)廠(chang)，降(jiang)低(di)制水(shui)(shui)成本，調整(zheng)、完善(shan)水(shui)(shui)廠(chang)布局(ju)，實施原水(shui)(shui)統籌(chou)、水(shui)(shui)廠(chang)歸并、規模(mo)經(jing)(jing)營的(de)自來(lai)水(shui)(shui)供(gong)應(ying)方式(shi)。根(gen)據水(shui)(shui)廠(chang)供(gong)水(shui)(shui)能力和水(shui)(shui)廠(chang)供(gong)水(shui)(shui)范圍確定水(shui)(shui)廠(chang)的(de)經(jing)(jing)濟(ji)性，選(xuan)擇(ze)適宜供(gong)水(shui)(shui)模(mo)式(shi)。

推行市場(chang)化運作理念，按照“經營(ying)企業(ye)化、管理專業(ye)化、供水商(shang)品化”的要求，積極探索(suo)多元化供水管理模式。

依托城(cheng)鄉(xiang)(xiang)供(gong)水(shui)一(yi)體化布局現(xian)狀，對城(cheng)市供(gong)水(shui)企(qi)業(ye)、區域性(xing)供(gong)水(shui)企(qi)業(ye)、農村供(gong)水(shui)單元進(jin)行(xing)整合，鼓勵社會(hui)力(li)量參與，通過(guo)劃(hua)轉、收購、兼并、控(kong)股(gu)(gu)、參股(gu)(gu)等(deng)方式，整合城(cheng)鄉(xiang)(xiang)水(shui)務資(zi)產，組建或新(xin)建供(gong)水(shui)主體，逐步形(xing)成以產權為紐帶的(de)城(cheng)鄉(xiang)(xiang)一(yi)體化的(de)供(gong)水(shui)主體（供(gong)水(shui)公司(si)或集團），承(cheng)擔城(cheng)鄉(xiang)(xiang)供(gong)水(shui)統一(yi)經營管理工(gong)作。這種(zhong)模式適(shi)宜(yi)于城(cheng)市化水(shui)平較高的(de)地(di)區。

城(cheng)鄉(xiang)(xiang)供(gong)水(shui)一(yi)體化(hua)(hua)的(de)發展對資(zi)金(jin)、運(yun)營、服務(wu)等(deng)方(fang)面(mian)具有較高的(de)需求和要求，創新農村供(gong)水(shui)工(gong)程投融(rong)資(zi)機制(zhi)，強化(hua)(hua)工(gong)程設計(ji)、建(jian)設和運(yun)營維(wei)護的(de)有機銜接，鼓勵(li)農村供(gong)水(shui)和城(cheng)鄉(xiang)(xiang)一(yi)體化(hua)(hua)工(gong)程采用(yong)(yong)PPP模式(shi)。在(zai)面(mian)積較小、城(cheng)市供(gong)水(shui)覆蓋率(lv)不(bu)高、區域自然條件適宜的(de)地區，供(gong)水(shui)收(shou)益潛(qian)力(li)較大，可采用(yong)(yong)PPP方(fang)式(shi)推進城(cheng)鄉(xiang)(xiang)供(gong)水(shui)一(yi)體化(hua)(hua)。

按(an)照城鄉供(gong)(gong)水(shui)一體(ti)化布局(ju)和規模(mo)化經營要求(qiu)，對(dui)于城鄉供(gong)(gong)水(shui)管(guan)(guan)(guan)網(wang)難以(yi)覆蓋的(de)地(di)(di)區，可采(cai)用分(fen)級管(guan)(guan)(guan)理模(mo)式，即以(yi)城鄉供(gong)(gong)水(shui)、區域性(xing)供(gong)(gong)水(shui)管(guan)(guan)(guan)網(wang)為主，將饋點接入管(guan)(guan)(guan)網(wang)或獨立(li)(li)管(guan)(guan)(guan)網(wang)作為分(fen)級單元，由(you)其負責其供(gong)(gong)水(shui)范圍(wei)的(de)運營管(guan)(guan)(guan)理和收費，收益可實行分(fen)成制(zhi)或獨立(li)(li)核算承包制(zhi)等(deng)。這種模(mo)式適宜于單村(cun)供(gong)(gong)水(shui)工程較多的(de)地(di)(di)區。

建立城鄉統籌、設(she)施完備(bei)的供(gong)水(shui)(shui)工程體系，調整和建設(she)一批骨干水(shui)(shui)源和重點供(gong)水(shui)(shui)工程，促(cu)進與城市(shi)供(gong)水(shui)(shui)同(tong)質量、同(tong)標準、同(tong)保障、同(tong)服(fu)務，提(ti)高城鄉供(gong)水(shui)(shui)保障水(shui)(shui)平。

實施(shi)供(gong)水管網改(gai)造，加(jia)強供(gong)水骨(gu)干網絡建(jian)設(she)力度，將管網建(jian)設(she)與(yu)改(gai)造進行統一(yi)規劃、建(jian)造、監管，建(jian)立城(cheng)鄉統籌、設(she)施(shi)完備的供(gong)水管網和(he)工程體系，保(bao)障城(cheng)鄉供(gong)水調控(kong)有力。

采用先進的(de)信息化(hua)管(guan)理技術，對整個供水(shui)工(gong)程進行自動化(hua)監測和(he)控制，推廣(guang)基于物聯網(wang)(wang)的(de)智(zhi)能網(wang)(wang)絡(luo)水(shui)表(biao)系統的(de)建設(she)及其(qi)在管(guan)網(wang)(wang)漏失(shi)監測、爆管(guan)預測中的(de)應用。

健(jian)全(quan)供(gong)水(shui)管(guan)理(li)運行(xing)體制(zhi)(zhi)，理(li)順城(cheng)鄉(xiang)分割(ge)(ge)、部門(men)分割(ge)(ge)的(de)管(guan)理(li)體制(zhi)(zhi)，建(jian)(jian)立健(jian)全(quan)政府主(zhu)導、水(shui)行(xing)政主(zhu)管(guan)部門(men)和(he)城(cheng)建(jian)(jian)部門(men)牽頭、相關部門(men)各負(fu)其責、全(quan)社(she)會(hui)共同參與的(de)城(cheng)鄉(xiang)供(gong)水(shui)一體化管(guan)理(li)體制(zhi)(zhi)，促(cu)進城(cheng)鄉(xiang)經濟社(she)會(hui)全(quan)面(mian)、協調、可持續發展。

城(cheng)鄉(xiang)供水一體化(hua)建設需(xu)要(yao)資(zi)(zi)(zi)金規(gui)模較大，既需(xu)要(yao)政(zheng)府的投(tou)(tou)資(zi)(zi)(zi)補(bu)助，更需(xu)要(yao)多方(fang)籌(chou)措資(zi)(zi)(zi)金。可(ke)以考(kao)慮的投(tou)(tou)融資(zi)(zi)(zi)方(fang)式主要(yao)包(bao)括政(zheng)府投(tou)(tou)資(zi)(zi)(zi)補(bu)助、社(she)會(hui)投(tou)(tou)資(zi)(zi)(zi)以及受益群眾自籌(chou)，以及銀行貸款(kuan)、PPP基金、專項債券、資(zi)(zi)(zi)產證(zheng)券化(hua)、保險資(zi)(zi)(zi)金等(deng)。

農村供水(shui)(shui)經濟效益不高，通(tong)常(chang)市場吸引(yin)力(li)不大，需要通(tong)過建立健全包括價(jia)格(ge)(ge)、補(bu)(bu)助(zhu)、補(bu)(bu)貼、稅收(shou)等各類優惠(hui)政(zheng)策，吸引(yin)社會力(li)量參(can)與。加大政(zheng)府(fu)的投資(zi)力(li)度(du)，設立長效管(guan)理專(zhuan)項(xiang)資(zi)金(jin)，用于(yu)(yu)監管(guan)、水(shui)(shui)源(yuan)地保護、偏遠山(shan)區(qu)(qu)、運行(xing)(xing)管(guan)護補(bu)(bu)貼和貧困人(ren)口(kou)的水(shui)(shui)價(jia)補(bu)(bu)貼；對(dui)(dui)于(yu)(yu)提供符(fu)合標(biao)準和優質服(fu)務(wu)的運營(ying)企業給予一定的獎勵(li)；逐步(bu)完(wan)善價(jia)格(ge)(ge)形成機制(zhi)，由于(yu)(yu)國家對(dui)(dui)農村飲水(shui)(shui)依(yi)然實(shi)施稅收(shou)優惠(hui)政(zheng)策，可對(dui)(dui)農村用水(shui)(shui)戶(hu)特別是貧困地區(qu)(qu)用水(shui)(shui)戶(hu)實(shi)行(xing)(xing)農村水(shui)(shui)價(jia)（同(tong)農電價(jia)格(ge)(ge)），有條件(jian)的地區(qu)(qu)可推行(xing)(xing)“基本(ben)水(shui)(shui)價(jia)+計量水(shui)(shui)價(jia)”兩(liang)部制(zhi)水(shui)(shui)價(jia)等制(zhi)度(du)。

城(cheng)鄉供(gong)水(shui)(shui)一體化，本質上(shang)就是消除農村與城(cheng)鎮供(gong)水(shui)(shui)之間存在(zai)的顯而(er)易見的差(cha)距。這種差(cha)距既表現(xian)在(zai)供(gong)水(shui)(shui)基礎設(she)施建設(she)投入、供(gong)給方式(shi)等(deng)方面(mian)，也表現(xian)在(zai)水(shui)(shui)價、水(shui)(shui)質水(shui)(shui)量(liang)、運營(ying)維護等(deng)諸多方面(mian)。

總體上，為了滿足(zu)人民(min)群眾(zhong)對美好生(sheng)活的向往，不(bu)應(ying)該存在(zai)(zai)這(zhe)種顯(xian)著的“二元”分割現(xian)(xian)象，農村供水(shui)應(ying)該向城鄉供水(shui)一(yi)體化(hua)(hua)方向發向。這(zhe)種一(yi)體化(hua)(hua)，既體現(xian)(xian)在(zai)(zai)供水(shui)基礎設(she)施(shi)的一(yi)體化(hua)(hua)，也體現(xian)(xian)在(zai)(zai)供給方式（包(bao)括規(gui)劃、投(tou)入、標準、質量、運營、監管(guan)等）的一(yi)體化(hua)(hua)。