按：2003年11月17-18日，云南省政府发展研究中心和世界银行联合在昆明组织召开了“公私合作参与水电建设国际研讨会”。水利部水电局程回洲局长应世界银行总部邀请,进行了“关于中国农村水电发展的几个问题”的讲话。现登载讲话全文。 

女士们，先生们：

早上好。

感谢大家对中国农村水电事业的关注，欢迎各方面投资建设农村水电。我这里所说的农村水电是指5万kW及以下的小水电。借此机会，对农村水电发展我讲几个问题。

一、资源总量、分布和特点

中国农村水电资源十分丰富，据最近资源复核初步统计，可开发量约为1.3亿kW，居世界第一。资源分布广泛，全国30多个省（区、市）的1600多个县（市）都有农村水电资源，主要集中在西部、中部和沿海地区，西部地区、贫困山区、革命老区、少数民族地区占70%以上。资源分布分散，适合于分散分布式供电的战略发展方向。规模适中，适合农村、农民组织开发，促进农民增收和农村经济发展。适合私人投资开发。没有大量水体集中和移民、淹没，不排放温室气体和有害气体，是清洁可再生能源。

二、建设成就

1949年，新中国成立时，全国农村都没有电。中央政府采取两条腿走路的方针，在农村主要靠结合江河治理，兴修水利，开发农村水电，解决照明和生活生产用电问题。直到上世纪90年代以前，中国大部分的县都主要靠农村水电供电。通过开发农村水电，全国累计解决了6亿多无电人口的用电问题。中国有1500多个县开发了农村水电，共建成4.8万座农村水电站。预计2003年，全国将新增农村水电装机230万kW，全国农村水电总装机将达到3080万kW，年发电量1100亿kWh，均占全国水电总装机和年发电量的40%左右。农村水电全年发供电增加值500亿元，利税70亿元。水利部按国务院部署，在“七五”、“八五”、“九五”期间，在全国连续组织三批农村水电初级电气化县建设，建成了653个农村水电初级电气化县。这些县基本上都实现了国内生产总值、财政收入、农民人均收入、人均用电量“5年翻一番”、“10年翻两番”，经济结构显著改善，发展速度明显高于全国平均水平。农村水电已经成为中国广大农村重要的基础设施和公共设施，在中国经济社会发展中发挥着重要的作用。

 三、投资结构演变

1990年以前，农村水电建设主要靠国家投资，农村水电初级电气化县建设投资中，中央投资占30%以上。 1990年以后到上世纪末，除了国家投资外，广东、浙江、福建等地有部分社会资本（主要是私营企业）投资农村水电开发，此间外资也开始投资农村水电。进入本世纪，更多的社会资本在更大范围内投资农村水电建设，浙江、广东、福建等沿海开放地区比例比较高。新时期，国家将农村水电列入周期短，见效快，覆盖千家万户，促进农民增收效果更显著的农村中小型基础设施，要扩大投资规模，充实建设内容。同时国家将农村水电作为大规模退耕还林生态建设，解决农民烧柴和农村能源的重要途径，实施“小水电代燃料生态工程”。农村水电作为农村基础设施和生态保护工程，国家将会进一步支持。

 四、主要经验

1、按照中国国情办事。中国政府采取两条腿走路的方针，在很长一段时间内，农村用电问题主要由地方结合江河治理，兴修水利，开发农村水电来解决，符合中国国情，调动了中央和地方两个积极性。农村水电不仅解决了农村用电，而且成为农村强大的社会生产力，因而发展很快。 2、按客观规律办事。将农村水电开发与江河治理、水利建设紧密结合，在中国的广大山区，农村水电是山区水利的龙头。充分发挥水资源的综合效益，既取得了发电效益，又获得了防洪、灌溉、供水等综合效益，实现了水资源的综合利用和可持续利用。 3、坚持为农业、农村、农民服务的宗旨。发展农村水电，解决农村经济社会发展用电，又形成强大的农村社会生产力，直接为农业增产，农民增收，农村发展服务。 4、与消除贫困紧密结合。在广大西部地区，老、少、边、穷地区，实施农村水电电气化战略，将资源优势化转为经济优势，促进农村消除贫困，实现经济效益和社会效益双赢。 5、与保护生态紧密结合。在退耕还林等重点生态建设地区，实施小水电代燃料生态战略。解决农民燃料和农村能源问题，巩固以退耕还林为重点的大规模生态建设的成果，实现经济效益与生态效益双赢。 6、国家政策和投资支持。中国政府制订了“自建、自管、自用”、“农村水电要有自己供电区”、“以电养电，滚动发展”、实行6%增值税等政策。政府对农村水电发展给予了大量的投入。

 五、发展机遇

1、生态安全得到世界各国关注，温室气体排放成为全球关注的焦点。调整能源消费结构，大力发展清洁可再生能源，减少二氧化碳排放，得到国际社会的高度重视。 2、中国实施可持续发展战略，统筹人与自然的和谐发展，实施以退耕还林为重点的大规模生态建设。实施小水电代燃料生态保护工程，解决农民燃料和农村能源，巩固退耕还林成果。规划到2020年，将建设投产代燃料生态电站2400万kW。 3、中国高度重视“农业、农村、农民”问题，统筹城乡发展。农村水电被确定为重点支持的农村中小型基础设施和公共设施。 4、中国实施西部大开发战略，统筹区域发展。西部地区是中国农村水电资源最丰富的地区。开发西部地区农村水电资源，是西部大开发的重要内容。 5、水利继续受到国家的高度重视和支持。农村水电作为山区水利的龙头，将得到持续、快速、健康发展。 6、国务院部署水利部组织水电农村电气化县建设，不断地适应农村经济和社会发展的用电需求，提高农村电气化水平。预计2020年前，中国农村水电每年新增装机将保持在200-300万kW。 7、国家推进电力体制改革，打破电力垄断。政企分开、公平竞争、开放有序、健康发展的电力市场体系将逐步形成，农村水电发展的市场环境将逐步改善。

 六、问题和风险

 1、不按流域综合规划和河流水能开发规划，不经水利部门许可，无序开发农村水电情况严重，一些地方甚至出现“跑马圈河”现象。一些按河流综合规划，有防洪、灌溉、供水、生态效益的水利水电工程，开发商单纯按发电工程来开发；一些开发商不按河流水能开发规划的装机规模建设电站，而是依自己的财力，缩小装机规模；一些开发商不按梯级规划，任意选点建设等等，造成资源和财力的大量浪费，甚至危害防洪、灌溉、人畜饮水和生态用水安全。 2、一些工程不经过水利部门审查，工程结构存在严重安全隐患，违反基建程序，无审查、无设计、无验收、无管理的“四无”水电站问题突出，有的已造成特大事故。最近水利部对全国“四无”水电站进行了一次大清查，查出很多座“四无”水电站。这些电站存在着严重的事故隐患，对国家和人民群众的生命财产安全构成严重威胁。 3、设计市场、设备市场、建设市场亟需规范。近两年，由于农村水电迅猛发展，一些地方行业管理缺位或跟不上发展的要求，一些不具备设计资质的单位参加农村水电工程设计；一些不具备生产能力或生产技术水平低下的工厂、车间，甚至个人都大量承揽设备制造任务；一些不具备施工资质的建设单位承建农村水电工程等，这些都造成工程安全、设备安全和生产安全隐患。针对上述问题，水利部和有关部门将采取有力措施，进行清理、整顿和规范。 4、电力体制改革稳步推进，但输配分开尚未提上日程，电网垄断仍未打破。有水发不了电，有电上不了网的问题还可能在某些地方存在。 5、国务院出台了新的电价政策，但新的电价机制形成尚待时间。 6、农村水电立法滞后。《农村水电条例》尚未出台。清洁可再生能源发展还没有立法支持。

 七、进一步发挥农村水电在经济社会发展中的作用

新时期，中国政府提出了全面建设小康社会的宏伟目标。全面建设小康社会的难点和关键是农村，特别是广大的西部农村，这些地方拥有丰富的农村水电资源。因此，要充分发挥农村水电在促进农村经济社会发展中的作用，为农村全面建设小康社会提供有效支撑。 1、加强农村基础设施建设，改善农村生产生活条件。通过发展农村水电，不断完善农村发电、供电设施，为农村经济社会发展提供动力。同时通过建设农村水电，加快治理江河，提高河流兴利除害能力，增加防洪库容和控制能力，增加农业灌溉和供水能力，改善农村生活生产条件。 2、增加农民收入。通过国家扶持、农民投资投劳入股，开发农村水电，直接增加农民收入。通过发展农村水电，带动农村产品加工，带动当地特色资源开发，带动建材、建筑、旅游、运输等行业的发展，为农民增加就业机会，转移农村剩余劳动力。特别贫困的地区要通过政府加大扶持补贴力度，让农民通过开发当地水电资源解困增收。 3、为地方创造更多的GDP和财政收入。通过开发农村水电，进一步把山区资源优势转变为经济优势，为地方创造大量GDP和财政收入，同时带动其他资源开发和其它行业发展，调整农村经济结构，促进经济结构的优化升级，发展农村经济。 4、保护和改善生态环境。充分发挥农村水电成本低的优势，进一步降低电价，解决农民燃料和农村能源问题，保护森林植被，巩固以退耕还林为重点的生态建设成果。 5、为国民经济和社会发展提供更多的清洁可再生能源，改善能源结构。

Ladies and Gentlemen： Good morning. Thank you to attach great attention to undertakings of rural hydropower of China and welcome all sides of investors to develop rural hydropower. The rural hydropower that I said in the speech refers to small hydropower with the capacity less than 50 MW. I would like to use this chance to set forth several issues regarding developing rural hydropower of China.

 I、Gross Potential, Distribution and Features of Resources

The resources of rural hydropower of China are very abundant. According to the preliminary statistics of recent check survey, the capacity that can be explored amounts to 130 GW, ranking the 1st place in the world. The rural hydropower resources are distributed widely in more than 1600 counties of 30 provinces (Autonomous Regions and Metropolis), which mainly concentrate in western, middle part and littorals of China. Western part, poor areas, minority areas contain over 70% of total rural hydropower resources. Due to the decentralized distribution rural hydropower beseems the strategic development direction of separate and distributing power supply. The moderate scale of rural hydropower is fit for countryside, farmer organizations and private sectors to explore and conducive to increasing farmer’s income and promoting the development of rural economy. To develop rural hydropower will not result in a large pool of water and cause resettlement or submergence. It will also not emit GHG or any harmful gas. Rural hydropower is a clean renewable energy.

 II、Achievements of Development

When new China was established in 1949，rural areas of China have no access to power. The central government took the guideline of “walk with two legs” to explore rural hydropower in order to address the power shortage. This development is combined with control of rivers and construction of irrigation works. Up to 1990s, most of counties of China have been electrified by rural hydropower. The development of rural hydropower settled the electrified difficulties of 600 million Chinese people accumulative total. There are over 1500 counties explored rural hydropower and more than 48000 rural hydropower stations built up altogether. It was expected 2.3 GW capacity will be put into operation at the end of 2003 while the total capacity of rural hydropower will reach 30.8 GW and generate energy of 110 billion kWh annually. Both the capacity and annual energy will account for 40% of that of total hydropower in China. In 2002 rural hydropower realizes added value by power generation and power supply RMB 50 billion and profits 7 billion. According to the deployment of State Council, Ministry of Water Resources has continually organized the construction of 3 batches of preliminary rural hydropower and electrification counties from 1985 to 2000. There are 653 preliminary rural hydropower and electrification counties completed. The GDP, financial revenues, farmers’ income and energy utilization of those counties increase double over that of 5 years ago or 10 years ago. The economic structure conspicuously improved while the developing speed increased higher than national average level. Rural hydropower has become an important infrastructure and public establishment in vastness of rural areas of China. It is playing and will play the important role in the development of Chinese economy and society.

III、Evolvement of Investment Structure

Before 1990 the main financial resource came from national investment. The investment from central government accounted for more than 30% of total investment during the construction of electrification counties. From 1990 to the end of last century, besides the national investment, other non-public sector also participated in the development of rural hydropower, mainly the private capital, in Guangdong, Zhejiang, Fujian and other regions. Meanwhile foreign investors started their investment in rural hydropower. At the beginning of this century, more and more non-public investors invest in the construction of rural hydropower station. The proportion of non-public investment ranks comparatively high in Zhejiang, Guangdong, Fujian and other littoral regions. In this new era, with rural hydropower listed into “Six Small Projects” by our country, rural hydropower needs to expand the investment scale and enrich the construction content. “Six Small Project” is a combination of 6 small/middle scale of infrastructure projects in rural areas recommended by national government. Their characteristic can be made a summary of short period of construction, short period of capital return, wide coverage of benefited people and notable effect of income increase. At the same time, Chinese government carries out Project of Substituting Small Hydropower for Fuel as an important method of consolidating ecological project of transforming farmland into forest to meet farmers’ living energy and rural production energy demand. Rural hydropower belongs to rural infrastructure and ecological protection projects, therefore, country will increase the investment accordingly.

IV、Main Experience

1、On the basis of the situation of China. Chinese government adopted the policy of “walk with two legs”. During a very long time, the problem of power shortage mainly depended on local strength to address and with the combination of controlling river and building up irrigation facilities. Because the development of rural hydropower could not only resolve the electricity shortage but also become the strong productivity, according for the situation of China, the enthusiasm of central government and local people were aroused it is developing rapidly. 2、On the basis of objective rule. Combining tightly the development of rural hydropower with river controlling, rural hydropower is a dragon head in the construction of irrigation works in mountainous region. To develop rural hydropower will not only bring the comprehensive benefits of water resources into full play, but also promote the sustainable development. 3、Insist on the principle of serving agriculture, country and farmers. To develop rural hydropower will make contributions to raising rural productivity, increasing farmers’ income and promoting rural development after the energy demand of daily life and production were satisfied by rural hydropower. 4、To tightly combine with poverty elimination. In the vast areas of west China, rural electrification transforms the resources advantages into economic advantages, promotes the poverty elimination and realizes the double wins of economic and social benefits. 5、To tightly combine with the ecological protection. Project of Substituting Small Hydropower for Fuel are carried out in those key areas where project of transforming farmland into forest also carries out so that the energy demand to daily life and rural production can be satisfied, while the results of project of transforming farmland into forest can be consolidated. 6、National policy and investment support. Chinese government sets up the policy of“self-construction, self-management and self-utilization”、“rural hydropower shall have its own power supply areas”、“to feed power with power, realize the rolling development”、maintains the value added tax of rural hydropower at 6%. Government has put into a large amount of investment in rural hydropower.

 V、Development Opportunities

 1、Ecological safety was paid great attention by each country of the world today and the attention focus is GHG emission. International community will attaches more and more regard to energy structure adjustment, promotion of renewables and reduction of carbon dioxide. 2、Chinese government carries out the strategy of sustainable development, plan the harmonious development of human being and nature as a whole and take the measures of project of transforming farmland into forest and other ecological protection projects. Project of Substituting Small Hydropower for Fuel will be carried out to meet the living energy and rural energy demand. According to the planning of Project of Substituting Small Hydropower for Fuel, up to 2020, the ecological capacity of small hydropower station substituting for fuel will amount to 24 GW. 3、China attaches great attention to the issue of“agriculture, countryside and farmer”and plan the development of town and countryside as a whole. Rural hydropower has been determined an important small and middle scale of rural infrastructure and public facility, which will be provided with national support. 4、China implements the strategy of developing west and plan regional development as a whole. Rural hydropower is very abundant in western part of China. To develop rural hydropower resources is an indispensable part of strategy of developing west. 5、Water resources will continue getting the high attention and support. Rural hydropower as the dragon head of irrigation works of mountainous region will realize the sustainable, rapid and healthy development. 6、State Council has instructed MWR to organize the construction of Hydropower and Rural Electrification Counties to raise the electrification level and meet the energy demand of rural economy and society. It was by the end of 2020 that 2-3 GW capacity of rural hydropower should be put into operation annually. 7、Country will steadily push power sector reform to decentralize the monopoly on power market. An equal, competitive, open, orderly and healthy power market system with a separation between government and enterprises will come into being. The environment of rural hydropower market is improving gradually.

VI、Problems and Risks

1、Unorderly development of rural hydropower is very severe. Those hydropower stations do not accord for the comprehensive planning of river basin and hydraulic potential development planning. Some river basins are even trenched on viciously preventing from equal competition. Some multi-purposed projects with the benefits of irrigation, flood control and ecological benefits have been explored as a pure commercial power generation projects; some developers reduce the installed capacity of stations defying the hydraulic potential planning but according to their own financial resources; some developers at will choose the site not obeying the rolling planning of rural hydropower, therefore, resulting in a great deal of resources waste and even affecting the safety of flood control, irrigation, water drink and ecological water utilization. 2、Severe hidden safety trouble exists in structure of some projects which have not passed through the appraisal and approval of water resources sector. The “Four Without” projects that disobey basic construction procedure without approval, design, checking and acceptance, and management stand out seriously and some even have caused the fatal safety accidents. Recently MWR just finished cleaning up “Four Without” hydropower stations, and there are many stations smelled out. Those stations that have the severe hidden safety trouble form a serious threat on people’s life and belongings. 3、Design market, equipment market and construction market is in urgent need of regulating. In recent two years, due to the rapid development of rural hydropower, sector management was kept vacant or difficult to keep in touch with the development of rural hydropower. Some unqualified design institutes participate in the design field of rural hydropower sector; some factories, workshops that are not qualified or with a low technical capacity and even individuals can pull a large amount of equipment manufacturing works into arms; some unqualified construction enterprises also took charge of rural hydropower works. All above causes the severe hidden safety trouble to construction, equipment and production of rural hydropower. Regarding those problems above, MWR and concerning sectors are taking effective measures to straighten out and regulate. 4、With the steady advancement of power sector reform, separation between transmission and distribution is not listed into the agenda, so the monopoly of grid still needs decentralizing. Some hydropower stations can generate energy but are not allowed to doing so. Some hydropower stations are allowed to generating energy but energy generated is not accepted by grid. Those phenomena exist in some areas unchanged. 5、Although State Council has issued the new power price policy, the new scheme of power price still needs time to be established. 6、Legislation of rural hydropower lags far behind.《Regulation on Rural Hydropower》 is not enacted. There is no lawmaking support on the development of renewables so far.

 VII、To Fully Develop the Role of Rural Hydropower in Economy and Society

In the new era Chinese government puts forward a grand goal of building up a well-off society. The difficult and crucial point of building up well-off society is rural areas, especially the vast western part of China. And those areas are rich in abundant rural hydropower. Therefore, it is necessary for rural hydropower to bring its advantages into a full play to promote the development of economy and society, and provide the effective support for building up well-off society. 1、To Strengthen the construction of rural infrastructure and improve the life and production condition of rural areas. To develop rural hydropower, improve the facilities of power generation and power supply gives the drive to rural economy and society. Meanwhile, to accelerate the controlling of rural hydropower, increase the controlling level of flood prevention reservoirs increases the ability of rural irrigation and water supply, therefore, improves the life and production condition in rural areas. 2、To Increase the farmers’ income. Farmers can increase their income by putting money or labor into the construction of rural hydropower. The latter development can bring along the byproducts industry, other local resources development, construction industry, tourism and transportation industry. It can also transform the surplus farmers into useful workers. The severe poor areas can eliminate poverty and increase farmers’ income by exploring rural hydropower with the help that government raise the level of financial allowance. 3、To create more GDP and financial revenues. To develop rural hydropower is to transform the resources advantages into economic advantages, which could create a great deal of GDP and financial revenues as well as bring along other resources and sectors development, as well as complete the rural economic structure adjustment, improve its optimization and promote the rural economic development. 4、To protect and improve the ecological environment. Rural hydropower can fully develop its advantage of low cost and further lower the present power price to meet the life energy demand and rural energy demand so as to protect forests and vegetation, consolidate the results of the important project of transforming farmland into forest and other ecological projects. 5、To provide more and more renewable energy for national economic and social development and improve the energy structure. Thank you.