I. The main problems in the reform of water conservancy project management system.
1. Problems of traditional concepts and management methods
Since the founding of the country, the water conservancy project management unit has established a series of management procedures and norms in accordance with the management mode of planned economy. This was effective in the historical conditions at that time to strengthen the scheduling of water resources and realize the effective allocation of water resources and socio-economic development, which greatly contributed to the smooth development of the national economy. After the 14th Party Congress made the decision to establish a socialist market economic system, which lasted for ten years, China's socio-economic situation has undergone a radical change. Market economy of rational allocation of resources, survival of the fittest, the law of value, market competition mechanism has been y rooted in people's hearts. But in the water conservancy system, especially at the grass-roots level of water conservancy project management units, but to a large extent stagnant in the original concept of thinking, accustomed to the production of goods and engineering construction is heavily dependent on the administrative orders of the superiors, along the way of sloppy management, the unit workers eat "big pot rice", drink "big pot water ", low efficiency, low economic efficiency, poor income, soil and water resources, the comprehensive economic yield is very low, focusing on the social benefits of the play and ignored the growth of their own economic benefits and other phenomena are still prevalent. The main reason for this is:
(1), the national water conservancy industry policy lags behind, there is no immediate adjustment in policy, guiding the development of water conservancy industry related policy norms, the water conservancy project management how to enter the market research is not deep, not thorough.
(2), thousands of years of history formed by the concept of unpaid water y rooted. Society as a whole is slow to change the concept of unpaid water or low-priced water.
(3), the state attaches importance to the development and stability of the agricultural industry, in the price of commodity water, strict restrictions on the agricultural industry, a large part of the expenditure on commodity water is transferred to the water conservancy project management unit to bear.
(4), should be borne by the local government of flood control, drainage and other public welfare expenditures passed on to the water conservancy project management unit to bear.
The above aspects of the reasons, resulting in the water conservancy system employees of the old ideological concepts, the lack of new ideas to adapt to the development of the situation, new concepts, new styles, the lack of development of water conservancy projects, the new management model.
2. Problems of the management system
For a long time, China built a large number of water conservancy projects, the formation of more than four hundred and seventy-seven million water conservancy project management units, and has hundreds of billions of dollars of fixed assets. Initially formed with flood control, drainage, irrigation, water supply, power generation, breeding, planting, tourism and other functional elements, storage and diversion combined, large, medium and small, geographically distributed water conservancy project system, for the rapid development of the national economy has played a huge role in the foundation and support.
These different functional elements in the water conservancy project, generally divided into two categories of social welfare and production and operation. In the water conservancy project management system is divided into centralized management and local management, that is, according to the administrative management of regional division and according to the watershed (or irrigation district) division. Local management of water conservancy project management unit of the administrative authority of the local people's government at all levels of water administration department, business management authority of the local irrigation management department or cross-administrative region **** with the upper level of irrigation management department.
Because of the separation of the administrative body and the main body of the business, the formation of the fragmentation of the block, the government and enterprises are not separated, the political affairs of the intersection of each other, each for the sake of the other, unclear responsibilities of the management system. Often the unified management of water resources, water and fisheries law enforcement and management, flood control and safety of law enforcement and management of the work of the misplaced or absent, as well as in the water conservancy project management institutions and the establishment of irrigation water supply transmission and spatial and temporal distribution of water supply, irrigation water price approval, water billing system, water conservancy project management or maintenance, water supply revenue distribution, and so on, a lot of contradictions. Due to the management system is not smooth, resulting in unclear responsibilities and rights between the administrative body and the main body of the business, there is a benefit when everyone competes for the management, there are problems with each other shirking the responsibility who are not willing to manage the situation. In the development process of water conservancy project management unit, the body smooth not smooth brought about by the impact of long-term, the harm is also fatal, and rationalize the management system is also the most difficult. Therefore, this is the focus of the water conservancy project management system reform.
3. Operation and management mechanism.
As a result of the water conservancy project management unit itself has a variety of functional elements of the specificity of the decision in the operation and management of a variety of operational mechanisms. The main performance:
(1), the operation of the water price mechanism. In accordance with the State Council, "water industry policy" requirements, the water conservancy project management units are in accordance with the policy and combined with their own reality, the implementation of the cost of water price measurement. Implementation of six years, the vast majority of water management units can not be measured in accordance with the approval of the cost of water billing, the general price of water only accounted for the cost of about forty percent. Although the water management unit for the water is a commodity, which condenses the commodity producers of huge physical labor and live labor, but can not get reasonable compensation from the low price of charges, can not maintain the normal operation of simple reproduction, will inevitably lead to the water management unit employees living in poverty and the instability of the workforce. The approval of the price of water is strictly controlled by the national price management departments at all levels, neither in accordance with the law of value of commodities and supply and demand pricing, but also can not get the government's price subsidies, which in fact is the government shifted the burden of the cost of water commodities expenditures. Therefore, the current national water management unit of the huge losses, the main reason are policy losses.
(2), the water billing mechanism. Over the years, the collection of water charges are by local governments at all levels to "physical measurement, monetary settlement" way of implementation, in the late nineties to "mu measurement, monetary collection" way. This in the planned economy, relying on administrative means to collect water charges is feasible, but in a market economy there are many contradictions. The first is the collection of the subject of misplaced: as water has the attribute of commodity, can not avoid the laws of the market economy, to avoid the buyers and sellers meet directly with the supply and demand service relationship. In recent years, many local governments generally appear to be unable to make ends meet, the situation of serious financial deficits, will inevitably be the vast number of farmers to pay the water fee for salaries, bonuses, office buildings, schools and local social welfare facilities and other expenditures. Therefore, there is a general phenomenon of local governments at all levels, especially the township squeeze, misappropriation, retention of water charges and other violations of discipline, resulting in some water conservancy project management unit of the outstanding water charges up to tens of millions of dollars of serious consequences. The second is the imbalance of the measurement standard: in the measurement of the way of charging, the long-term use of irrigation according to the design of irrigation surface or the early eighties of the irrigation surface, the field area converted to standard acres of water charges. In the past two decades, China's socio-economic structure has undergone tremendous changes, especially the restructuring of rural industries and the urbanization of townships, which has resulted in a serious deviation from the original approved standards in terms of the proportion of fields and soil and the amount of water used by various types of cash crops. Therefore, the traditional way of water billing has not been able to adapt to the development of the situation.
(3), the mechanism of water assets revenue division. In the water conservancy project of a single or unit project assets, the same type of fixed assets often at the same time to play two different functional benefits, such as reservoir projects in the dam, spillway, water release facilities, air release facilities and other projects, both for flood control and security play a role, but also for water storage, breeding, power generation, tourism and so on. As a result, the benefits played by each of the public welfare assets and operational assets will be difficult to quantify the value with accurate data to distinguish between their social benefits and their own economic benefits.
(4), water conservancy project management and maintenance mechanism. Most of China's large and medium-sized water conservancy projects or irrigation districts were built in the fifties to seventies of the last century, mainly through the construction of a large mass movement, coupled with the limitations of the technical and financial conditions at that time, there are generally low design requirements, low construction standards, construction quality is not high, the channel seepage control is not complementary and other issues. After decades of operation, resulting in aging water conservancy projects in disrepair, across the collapse of water damage is serious, low water utilization, water loss and waste of water resources is amazing, and there is a major water conservancy project safety hazards. In recent years, China's large rivers and dams and reservoirs of all types of flood control and rescue task is very difficult, reservoirs across the dam, the channel across the collapse of accidents occur from time to time. This is due to the consequences of water conservancy project management and maintenance and repair mechanism is not smooth.
Because of the water conservancy project management and operation mechanism in the problem involves a wide range of content, complex, therefore, this is the water conservancy project management system reform of the difficulties.
4. The problem of operation and management funds.
Water management units in the process of flood control, drainage management and commodity production and management activities, it is bound to cost a lot of human, material and financial resources, and the compensation for these expenditures mainly from the water revenue. Because our country is a large agricultural country, has long been "food for the program", "no food is unstable" and "water is falling from the sky, priceless and uncompensated" concept of influence, coupled with China's Agriculture is a vulnerable industry, the need for national support and policy protection, so the price of water commodities has not been in place, and the state does not compensate for public welfare expenditure, resulting in a shortage of funds for the operation and management of water management units. In addition, in accordance with national policy, the annual demobilization of veterans, the allocation of college and university graduates, and the formation of water management unit personnel increase, institutional bloat, low quality, it is impossible to implement the optimal allocation of water resources and human resources. Many large and medium-sized water conservancy project management unit due to the lack of funds, for a long time, did not join the pension insurance, medical insurance, unemployment insurance, housing and other social security system, a large number of employees retired, laid off, to be laid off, the basic life is not guaranteed, the unit and individual worries are very serious, especially in the western backward areas and grass-roots level of our country's water management unit is also prominent.
5. The nature of the water pipe unit.
The nature of the water pipe unit has experienced "institutions, enterprise management", "production-oriented institutions" process, the long-term implementation of the "self-supporting", "to income against expenditure" form of budgetary management, has not been scientific, objective, reasonable and accurate positioning. The reason lies mainly in the historical limitations and national economic underdevelopment. Water conservancy project is not only the infrastructure of the national economy, the basic guarantee of social development, but also the foundation of social and economic development and stability and unity. Therefore, it deserves to be supported by the state's key support and financial resources. Because of the complexity of the management of water management units, it is very necessary to define the nature of the unit in conjunction with the actual situation. Relying on the operating income of the water pipe unit to compensate for public welfare and operating expenses is unreasonable, but also can not be compensated. On the national water management unit in 1995 after the reform of the new accounting system, the huge annual losses, after a period of time, it is likely to appear "owners' equity" of the overall deficit, years of accumulation of "paid-in capital", "capital surplus" and so on will be Capital surplus" and so on will be huge "undistributed profits" deficit by offsetting all. This is due to the nature of the water pipe unit misplaced and compensation for the lack of results.
II. The implementation of water conservancy project system reform of the main measures.
1. Change the concept, change the way of thinking, to adapt to the development of the situation.
The first prerequisite for the reform of the water conservancy project management system is to reform the stereotypes that are not adapted to the development of the market economy situation, the original planned economy, commodity economy, completely dependent on the plan, relying on the way of thinking of the administrative order to change over, in accordance with the law of the socialist market economy, the law of value, the optimization of the allocation of resources and the survival of the fittest elements throughout our thoughts and actions. Especially in the water management unit within the water supply production, aquaculture, water conservancy and power generation, reservoir tourism, soil and water resources and other production and management practices, in strict accordance with the requirements of commodity production and exchange of commodities, to strengthen the management of all aspects of the strengthening of costing, rationalize the price, strict quality of products, and constantly improve the quality of the product, in the emphasis on their own economic benefits, while constantly improve the cultural standard of living of the staff. Must be a deep understanding of "development is the hard way" of the fundamental connotation, to understand the "market economy without tears" reason.
Through the means of reform, thorough reform does not adapt to the market economy point of view, methods, establish long-term development of strategic thinking, formulate realistic medium- and long-term development planning, combined with the implementation of the central situation of the western development of the situation, with the development of international economic integration of the idea of the development of the overall management of our work, all to the economic construction as the center, everything is based on the economic benefits as a starting point, rational allocation and optimal use of water and soil resources, human resources, and constantly improve the quality of life of the workers. Soil and water resources, human resources, and constantly improve efficiency in order to get rid of the plight of the water management unit struggling to achieve the goal of water in the first two decades of this century, the well-off people. However, we must fully realize the change of concepts of the arduous, long-term and complexity, firm conviction, step by step, to keep pace with the times, pioneering, so that the concepts and ways of thinking to keep pace with the development of the times.
2. Seriously handle the reform and development of several relationships.
1, stability, reform and development of the relationship. Institutional reform is not to all
abolish all the original policies, systems, norms, but to break down the old and establish the new, reform the relations of production that are not adapted to the development of productive forces, rationalize the management system, the establishment of new relations of production in line with the requirements of social development, to release the enthusiasm of the workers' production, and continue to work efficiently to create greater economic benefits. Reform is not an end but a means. Stabilization, efficiency and development are the purposes of our reform. Therefore, we must use the important thought of "three representatives" to guide the specific work of reform, with stability, realistic, innovative, developmental attitude to face the reform, in the reform of stability, in the stability of survival, in the survival of development.
(2), the relationship between administration and water management units. Water administrative departments at all levels and
Water management units should be in accordance with their respective functions, the division of irrigation areas within the water law enforcement, fisheries law enforcement, reservoir flood control, irrigation drainage, river lifting, irrigation management work of responsibility and rights. Water administration unit can only be in accordance with the laws and regulations of the rights granted by the administration of law, but not on the water management unit within the production and management of too much, too dead, too detailed. And water management units in the management of water conservancy projects, in line with the laws and regulations under the premise of giving full play to their own advantages of soil and water resources, market-oriented, water commodity production, sales, management and services; at the same time to strengthen the management of assets for the public good, to ensure the safety and integrity of water conservancy projects and facilities; do a good job in flood control, flood control, disaster mitigation, soil and water conservation, to ensure that the value of state-owned assets for the public good to multiply. Really make to the separation of government and enterprises, the separation of government affairs. The formation of complementary, mutually supportive, complementary new relationship.
(3), the relationship between social and economic benefits. The vast majority of water conservancy projects have a comprehensive function of public welfare and operation, its comprehensive benefits will inevitably have public welfare benefits and operational benefits, in the public welfare benefits in the performance of the huge social benefits, in the operational benefits in the performance of the economic benefits of the waterpipe unit itself. Therefore, to deal with this relationship is very important to the community, the water management unit. Define clearly the amount of assets and value of both is the focus of this institutional reform. From the fair, reasonable, scientific, quasi-public water management unit in flood control, drainage, soil and water conservation, ecological environment and other public welfare assets and operating assets division, according to the respective share of reservoir capacity, or flood control, drainage, disaster mitigation, environmental benefits accounted for the irrigation area within the scope of the average annual contribution to the GDP , or the water management unit of the total annual expenditures, minus operating income to make up for the expenditure of the share of the method, objectively determine the comprehensive The amount of physical labor and live labor of public welfare assets. At the same time combined with the current situation of the water management unit, geographic location, economic environment, the rate of economic development to adjust to determine the amount of compensation for public welfare depletion, do not engage in a one-size-fits-all.
To be divided and determined separately for each water management unit, a clear share of subsidies to be borne by the financial sector at all levels. At the same time, re-approved water management unit of the cost of water supply price, respectively, for industry, urban life, agricultural irrigation, urban environment and other different water categories to determine the cost and price of different water prices. And the cost price of agricultural water price and the year the implementation of the charge price comparison, according to the actual volume of water supply and the total amount of charges approved by the difference, will be part of this should not be borne by the water management unit of the difference, by the beneficiary of the local financial burden. However, due to the existence of uneven economic development across the country, the state should take a holistic approach, through the means of transfer payments, roughly balanced the share of the burden of the provinces and municipalities.
(4), the relationship between water conservancy infrastructure construction and management. Water conservancy infrastructure construction is both the focus of the central government's attention, but also the central government to implement the western development focus. In order to protect the normal operation of water conservancy projects and the protection of the lives and property of the general public security, a longer period of time in the future, the state should continue to increase the water conservancy project reservoirs at risk of remediation and large and medium-sized irrigation districts of the dry and branched canals supporting the transformation of seepage control, in order to facilitate the water conservancy project to better serve the socio-economic development of the role of a greater extent. Therefore, the water management unit must seize this opportunity to develop their own, great strength, improve social status, to meet the challenge; in strengthening their own integrated management at the same time, for the higher authorities in the policy, project, financial support. Reform of the investment system, property rights, operating rights, management rights to moderate separation, in the form of joint-stock cooperation, leasing and contracting, sale and auction, joint venture and other forms of liberalization and activation, to speed up the speed of infrastructure construction, lay a solid foundation for the future of the integrated management work, in order to enhance their own economic efficiency, fundamentally realize the virtuous cycle of the financial situation of the water management unit.
(5), internal and external relations. Rationalize the management system of water management units, mainly in the rationalization of the external management system and the rationalization of the internal management system of water management units in two aspects. External management system involves the central, provincial, municipal and county governments at all levels and all levels of water administrative departments, river basin agencies, the division of responsibilities and duties, these up and down the leadership of the relationship between the block business relationship through the reform must be rationalized. The internal management system is mainly involved in the basin, irrigation district, water management units within the division of responsibilities and duties. The rationalization of these internal relations, must be in the personnel, financial, distribution and other aspects of hard work. Through the internal and external rationalization, for the entire water conservancy project management system to create the conditions for rationalization, so that the top and bottom of the left and right relationship coordination, the formation of synergies, and constantly enhance the water conservancy project's ability to withstand natural disasters, and give full play to its social and economic benefits, and to achieve the ultimate goal of institutional reform.
(6), streamlining the relationship between the organization and the introduction of talent. In the process of water conservancy project management system reform, water management unit in the streamlining of institutions, compression of non-production personnel, clean up and withdraw in the planned economy period of the subordinate enterprises that do not adapt to the development of the situation, there is bound to be too many people can not be placed in the phenomenon of a large number of laid-off, unemployed and inevitably lead to the water management unit of the internal and social instability. At the same time, the development of water conservancy will appear in the introduction and absorption of much-needed professional and technical, management personnel. Therefore,
On the one hand, we must resolutely compress the non-production personnel and overstaffing, to take early rest, encourage resignation, self-employment, and encourage off-site study, rotational waiting for a variety of ways to streamline the staff team, supporting the corresponding social security measures, so that this group of personnel to be properly placed.
On the other hand, in accordance with the requirements of the fixed number, fixed staff, fixed responsibility, fixed post, fixed salary, absorb the high cultural level, with professional knowledge of the best people to the appropriate position to give full play to their knowledge and ability. To do personnel can enter and exit, wages can be high and low, the position can be up and down. At the same time, the implementation of personnel system reform, the establishment of a sound mechanism of employment and distribution mechanism, streamlining the organization, to make the best use of talent, people make the best use of it, and gradually adjust the staff structure, and constantly improve the cultural level of the staff. Deal with this relationship, will be very conducive to the water conservancy project management unit to lighten the load, improve the quality of workers and improve labor productivity, and promote the further deepening of the water conservancy project management system reform.
3, accurately determine the nature of water management units, the establishment of a realistic compensation mechanism.
The rationalization of water conservancy project management unit system focuses on the accurate characterization of the water management unit must be in accordance with the policy, combined with the actual situation, to achieve accurate characterization. In the public welfare, operating and quasi-public nature of the three different types of clearly defined, the vast majority of water management units are quasi-public water management units, and the most complex situation is also in this category. As a result of quasi-public welfare water mains unit both flood control, drainage and other public welfare tasks, but also water supply, power generation and other operational functions. Therefore, a scientific, objective and realistic attitude to determine the division of public welfare and operational methods. After a scientific division, a clear share of financial subsidies at all levels and self-supporting scope, purpose, personnel, standards, while establishing and improving the water pipe unit of pension insurance, unemployment insurance, medical insurance, housing fund and other systems, so that the staff of the production of jobs into the, go out of the retirement of some support, layoffs have a place to go.
4. Establish a new operating mechanism, in line with the objective requirements of production development.
Through the reform, the establishment of a set of market, adapt to the situation, in line with the requirements of the operating mechanism is very necessary. Its main mechanisms are:
First, in the formation of water price mechanism in accordance with the unified policy, re-approved industrial, agricultural, residential, ecological environment and other categories of cost of water prices, adjust the actual implementation of the price of water, the price of water for agricultural irrigation water to implement the "small steps" approach to speed up the process of adjustment of water prices. So that the formation of water price mechanism, price adjustment mechanism and management mechanism scientific, institutionalized, standardized, fully reflect the law of value and market supply and demand, to adapt to the new situation of the development requirements.
Second, in the water fee collection and management mechanism, in accordance with the "first service, after the charge" policy, no longer rely solely on local governments, reduce the collection and management links, clear collection of the main body; to achieve direct meeting of supply and demand, the implementation of the contractual system of water supply, charges to the grassroots level. At the same time, it must be tailored to the establishment of township or village water users association or branch canal management committee, led by the township or irrigation water management station, responsible for water supply, water management, charges, to resolve disputes over water supply and use of water, the formation of a one-stop service, to really do a good job of serving and collecting fees.
Third, in the agricultural water use mechanism, water conservancy project management unit must accelerate the measurement of water and water conservation construction, in the dry canal straight irrigation ditches and branch canals and important water control gates to install water metering facilities, the reform of the long-implemented mu charges, the implementation of the measurement of charges according to the party, the use of the basic amount of water to collect the basic water charges, the excess of water use of the progressive increase in the price of the method, to promote the work of water conservation To deepen the development of water conservation. At the same time, the management committee of a branch canal is responsible for water transmission, water management, irrigation and maintenance of a branch canal, and cooperates with the water users' association to do a good job of collecting and managing water charges.
Fourth, in the repair and maintenance mechanism to establish a professional water conservancy project maintenance and repair team, the implementation of entrepreneurial and market-oriented operation, specifically responsible for water conservancy project equipment, facilities, maintenance and repair of drainage projects, water conservancy project management and maintenance and repair of separation, not only can streamline the personnel of the water management unit, saving maintenance and repair funds, but also improve the quality of maintenance, shorten the duration, give full play to the project's operational efficiency. The benefits of the operation of the project can be fully realized.
Fifth, in the asset management mechanism, water administrative departments and local financial departments at all levels must develop relevant management regulations, pay close attention to the value of state-owned assets, the implementation of dynamic and static management. Water conservancy project management unit has the responsibility and obligation to manage and utilize the existing water conservancy assets, establish and improve the strict supervision mechanism and operation and management mechanism. Through the management of these assets and the creation of revenue, to promote the healthy, orderly and sustainable development of China's water conservancy undertakings.
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