摘 要：近年來，各地小型農(nóng)村水利改革蓬勃發(fā)展，創(chuàng)造了許多新的經(jīng)驗，取得了一定成效。如何推動改革深入健康進行，使農(nóng)村水利建設與管理的政策逐步完善，走上正規(guī)化、法制化軌道，需要對改革思路和深層次政策問題進行認真研究。作者在這里談幾點看法，供參考。
Pick to: in recent years, around the small rural water conservancy reform of booming development, created many new experiences, and achieved some results. How to promote the further health reform, the policy gradually improve rural water conservancy construction and management, normalization and legalization orbit, in-depth reform train of thought and policy issues have to be careful study. The author talk about some views, here for your reference.
　　關鍵詞：小型農(nóng)村水利；改革；思路
Key words: small rural water conservancy; Reform; Train of thought
　　　一、小型農(nóng)村水利的特點與性質(zhì)
A, the characteristics and nature of small rural water conservancy
　　�。ㄒ唬┬⌒娃r(nóng)村水利的特點
(a) the characteristics of small rural water conservancy
　　通常把灌溉面積１萬畝、除澇面積３萬畝、渠道流量１立方米每秒以下的工程界定為小型農(nóng)村水利工程。小型農(nóng)村水利工程種類和功能很多，大體可歸納為以下幾類：小水庫、塘壩、水池等蓄水設施，小型攔河閘壩、引水閘、截潛流等引水設施，渠道、管道、閘門等輸水配水設施，渡槽、隧洞、倒虹吸、橋、涵等交叉建筑物，泵站、機井等提水設施，灌水溝、畦、噴灌、滴灌、閘管、“小白龍”等田間灌水設施，保護村鎮(zhèn)、農(nóng)田的小型圩堤、河道堤防等防洪設施，排水閘、排澇泵站、排水溝、地下暗管等排澇降漬設施，鄉(xiāng)村自來水廠、水窖等生活供水設施。據(jù)不完全統(tǒng)計，全國約有２０００萬處小型農(nóng)村水利工程。
Usually the irrigation area of 10000 mu, and waterlogged area of 30000 mu, channel flow under 1 cubic meters per second as small rural water conservancy project engineering. Small species of rural water conservancy projects and many functions, can be roughly divided into the following categories: small reservoir and shuitangba, pools, such as water storage facilities, small DAMS and sluice gate structure, water diversion sluice, cut the undercurrent water diversion facilities, such as channels, pipe, valve and other water water distribution facilities, aqueduct, tunnel, inverted siphon, bridge, culvert, such as cross structures, pump stations, water facilities such as the shaft, irrigation ditch, strip, sprinkler irrigation, drip irrigation, brake pipe, such as "little white dragon" field irrigation facilities, small towns, farmland protection WeiDi dikes, river flood control facilities, such as outlet, drainage pumping stations, drainage and underground drainage tubes drainage JiangZi facilities, rural waterworks, water cellar life water supply facilities, etc. According to incomplete statistics, there are about 20 million small rural water conservancy projects in the country.
　　小型農(nóng)村水利的特點：一是地位作用重要，需要高度重視。二是群眾性強，需要廣大農(nóng)民參與。三是公益性較強，需要政府扶持。四是具有壟斷性，需要政府加強宏觀管理。農(nóng)村水利設施多地處農(nóng)田荒野，無人值守；風吹日曬雨淋，易老化損壞；土方工程多，維護工作量大。除生活供水工程外，多數(shù)工程季節(jié)性使用。農(nóng)村水利的建設與管理需要在政府的規(guī)劃與計劃指導下有序進行。
The characteristics of small rural water conservancy: one is the important position, needs to pay close attention to. Second, the mass is strong, need to farmers to participate in. Three is the public welfare is stronger, needs government support. Four is a monopoly, the need to strengthen government macro management. Rural water conservancy facilities located in farmland wilderness, unattended; The storm or aging damage; Earthworks, maintenance workload. In addition to the life water supply project, most engineering seasonal use. Rural water conservancy construction and management need to be under the guidance of the government's plans for the planning and orderly.
　�。ǘ┺r(nóng)村水利的性質(zhì)
(2) the nature of the rural water conservancy
　　農(nóng)村水利是農(nóng)民抗御自然災害，改善農(nóng)業(yè)生產(chǎn)、農(nóng)民生活、農(nóng)村生態(tài)環(huán)境條件的基礎設施，是促進農(nóng)業(yè)增產(chǎn)、農(nóng)民增收的物質(zhì)保障條件。除農(nóng)戶自用的微型工程外，農(nóng)村水利與農(nóng)村道路、農(nóng)村供電等同屬農(nóng)村公共工程，是農(nóng)業(yè)和農(nóng)村社會化服務體系的組成部分，具有較強的基礎性、公益性。
Rural water conservancy is a farmer resist natural disasters, improve agricultural production and farmers' life and rural ecological environment condition of infrastructure, is to promote agricultural production, increasing farmers' income so as to ensure the material conditions. Except for farmers use micro engineering, rural water conservancy and rural roads, rural electricity supply belong to the rural public works and is part of the agriculture and the rural social service system, strong basic, public welfare.
　　農(nóng)民是農(nóng)村水利事業(yè)的主體。尊重農(nóng)民意愿，依靠農(nóng)民的力量，合作辦水利，是發(fā)展農(nóng)村水利事業(yè)的基本原則。農(nóng)村水利的宗旨是服務。以興利為主的工程，既要適應市場經(jīng)濟要求，有償服務，核算成本，降低費用，促使工程良性運行，又要堅持不以營利為目的的宗旨。有關法律和政策對此有明確規(guī)定。
Farmers are the main body of rural water resources projects. Respecting farmers' will, rely on the power of the farmers, do water conservancy cooperation, is the basic principle of rural water conservancy development. Rural water conservancy purpose is service. Give priority to in order to create project, both to adapt to market economy requirements, paid services, cost accounting, reduce costs, prompted engineering benign operation, and to adhere to the principle of not for-profit. Relevant laws and policies have specific provision.
　　　二、明晰所有權(quán)，組建用水合作組織
Second, the clear ownership, forming water cooperation organization
　　　“誰受益，誰負擔，誰投資，誰所有”是農(nóng)村水利體制改革要遵守的重要原則之一。具體來說，不同類型工程，應實行不同管理體制。
"Who benefits, who pays and who invest, who all" rural water conservancy reform is one of the important principles to follow. Specifically, the different types of projects, different management system should be carried out.
　�。ㄒ唬┺r(nóng)戶自用的微型工程，實行“自建、自有、自管、自用”體制
(a) farmers own miniature project, implement the "build, own, since the tube, for private use" system
　　農(nóng)戶自用為主的微型蓄引提工程，政府可酌情在經(jīng)費上給予補助。這類工程作為農(nóng)民的家庭私有財產(chǎn)，發(fā)給產(chǎn)權(quán)證，受法律保護。
Farmers own miniature led to storage project, the government can discretionary spending on subsidies. This kind of project as a farmer's family, private property property right card, protected by law.
　　農(nóng)戶自有工程自己用不完的水，允許在農(nóng)戶之間，按平等協(xié)商、互利互惠、有償服務的原則，調(diào)劑余缺，充分發(fā)揮工程和水資源最佳效益。
Farmers owned engineering to burn our own water, allow between farmers, according to the equal consultation, mutual benefit and reciprocity, the principle of paid services, dispensing, we give full play to the project and the best benefit of water resources.
　�。ǘ┹^多農(nóng)戶受益的小型公共水利工程，推行多種形式的農(nóng)民用水合作組織管理體制
(2) more small farmers benefit from the public water conservancy project, the implementation of various forms of farmer cooperation organization management system with water
　　受益農(nóng)戶較多，特別是跨村或跨鄉(xiāng)的小型公共工程，應當按水系、渠系范圍，組建用水戶協(xié)會等多種形式的農(nóng)村用水合作組織。這種體制有以下特點：首先，它不按鄉(xiāng)、村行政區(qū)劃組建，更符合水利建設和管理的特殊要求，可以避開鄉(xiāng)、村借水費名義搭車收費或截留挪用等問題。第二，明確用水戶是建設主體、投入主體、所有者主體、受益主體，形成了以用水合作組織為紐帶的利益共同體。第三，機制靈活。合作辦水利，就是要有錢的出錢，有力的出力，有設備的出設備，可以以物換工，以資換工，以工換工，以工換水，每個成員的權(quán)利、責任和應盡義務都嚴格按章程辦事。第四，合作組織要按法律規(guī)定注冊登記，成為有法人地位的服務實體，受法律保護，能獨立承擔民事責任。第五，合作組織有章程，民主選舉負責人，在內(nèi)部采用民主協(xié)商方法決定成員出工、出資分攤以及水費計收等大事。
Benefit farmers more, especially across different village or township small public works, shall be according to the water system, scope of canal system, formation water user association, and other forms of rural cooperation organization with water. This system has the following characteristics: first, it is not in accordance with the township, village administrative divisions to form, more in line with the special requirements of water conservancy construction and management, can avoid the township and village borrow or interception misappropriate the water in the name of a lift. Second, clear water users are the subjects of construction, investment main body, the owner and the benefit main body, formed by water cooperation organization as a link the interests of the community. Third, flexible mechanism. Cooperation office of water, is to the rich pay, powerful output, equipment of the equipment, to exchange Labour, to exchange Labour, to exchange Labour, in order to change water, each member's rights, responsibilities, and its obligations in accordance with the articles of association. Fourth, cooperation organization registered according to law, and become a service entities with legal person status, protected by law, and can independently bear civil liability. Fifth, cooperation organization have articles of association, head of democratic election, internally democratic consultation methods members decided to work, investment allocation and water rate collecting things.
　�。ㄈ┙�(jīng)營性的小型農(nóng)村供水工程按“股份合作制”企業(yè)體制運作
(3) the management of small rural water supply project in accordance with the "share cooperation enterprise system operation
　　以向鄉(xiāng)村企業(yè)、果園、種植場、養(yǎng)殖場供水為主，兼有村民生活供水任務的農(nóng)村供水工程，應參照“股份合作制”企業(yè)辦法組建企業(yè)法人實體，實行企業(yè)內(nèi)勞動者平等持股、合作經(jīng)營，勞動者與所有者相結(jié)合，股本和勞動共同分紅的辦法。在這種管理體制下，產(chǎn)權(quán)清晰，所有者的權(quán)、責、利十分明確，有較強的內(nèi)在經(jīng)營活力。為了解決建設資金不足的問題，可以吸收有錢的“大戶”投資入股，并給予合理投資回報。但要防止出現(xiàn)“水霸”壟斷鄉(xiāng)、村公共供水設施或利用公共水資源牟取暴利的情況。從扶持農(nóng)村供水基礎設施建設出發(fā)，地方政府也可　　酌情對工程建設給予補助，這部分資金形成的股權(quán)應為政府所有，政府通過持股參與監(jiān)督企業(yè)經(jīng)營管理。
To the rural enterprise, orchards, plantation, farming water supply is given priority to, with the villagers living water task of rural water supply project, should refer to "share cooperation enterprise to form a legal entity, ensures equal shareholding enterprise, cooperative management, owners and employees combine, equity and work together to share out bonus. Under this management system, clear property rights, the owner of the rights and responsibilities, clear, strong internal business vitality. In order to solve the problem of insufficient construction funds, can absorb the rich "investors" investment, and a reasonable return on investment. But to prevent "water heater" monopoly township, village public water facilities, or using the public water resources for profiteering. From supporting the rural infrastructure construction of water supply, local governments also can take into consideration the subsidies in engineering construction, this part of the capital formation of equity should be the government, the government through shareholding enterprise supervision and management.
三、形式靈活多樣加強經(jīng)營管理
Three, flexible and varied forms to strengthen the operation and management
　　　明確了農(nóng)村水利公共設施歸用水戶集體所有，作為“業(yè)主”的用水合作組織還必須采用靈活多樣的形式，加強經(jīng)營管理，落實工程維護管理和服務責任，千方百計發(fā)揮工程效益。
Has been clear about the rural water conservancy over the water user collective public facilities, as the "owner" of the water cooperation organization also must adopt flexible and varied forms, strengthen management, to carry out the engineering maintenance and management and service responsibility, one thousand party hundreds of engineering benefits into full play.
　�。ㄒ唬┯盟献鹘M織自己直接經(jīng)營管理
(a) water cooperation organization oneself management directly
　　這種方式適用各類農(nóng)村水利工程。應當成為當前和今后農(nóng)村水利管理制度改革的主要方式加以提倡。目前全國近８０％的工程仍實行所謂的鄉(xiāng)村“集體”管理，應當逐步規(guī)范為用水合作組織自主經(jīng)營管理。
This approach applies to all kinds of rural water conservancy projects. Should be the current and future rural water management system reform, the main way to advocate. China now nearly 80% of engineering implement so-called country "collective" management, shall gradually specification for water cooperation organization independent operation and management.
　�。ǘ┯盟献鹘M織聘用“能人”經(jīng)營管理
(2) of the water cooperation organization to hire "wise men" operation and management
　　用水合作組織內(nèi)部找不到合適人選時，可以聘用外部的“能人”具體負責經(jīng)營管理。被聘者為用水合作組織“打工”，領取報酬。用水合作組織對受聘者監(jiān)督，促使其真正對工程的日常經(jīng)營管理負起責任，搞好服務。
Cannot find a suitable candidate, water cooperation organization can hire outside of the "wise men" to be responsible for operation and management. By hiring "working" for a water cooperation organization, receive the payment. Water cooperation organization to supervise the organizations, to promote its real daily operation and management for the engineering responsibility, do well the service.
　�。ㄈ┏邪�
(3) contracts
　　承包不改變工程所有權(quán)屬。它通過合同契約，由工程的所有者把管理權(quán)委托給承包者，同時對雙方權(quán)利、責任、義務給予明確，承包者比合作組織聘用的管理負責人有更大的自主權(quán)。承包者可以是合作組織內(nèi)部成員，也可以是社會上的人，可以一個人，也可以是幾個人組成的小組。
Don't change project contracting all the ownership. It by contract, by the project owner delegates authority to the contractor, give clear rights, responsibilities and obligations for both sides at the same time, the contractor has more than cooperation organization hire management, head of greater autonomy. Contractors can be cooperation organization member, also can be a social person, can a person, can also be a panel composed of several people.
　　承包方法簡便易行，較好地解決了工程維護管理差，管理責任不落實的問題，易被農(nóng)民接受，已有多年實踐經(jīng)驗，適用于各種類型的農(nóng)村水利公共設施。目前全國約有１０％的工程采用這種形式，應當作為農(nóng)村水利經(jīng)營管理機制改革的主要方式之一加以提倡。
Contracting method is simple, easy to follow and solve the engineering maintenance and management, management responsibility not to carry out the problem, easy to be accepted by the farmers, for many years practical experience, is suitable for various kinds of rural water conservancy infrastructure. About 10% of the whole country at present the project in this form, shall be used as the rural water conservancy management mechanism reform of one of the main ways to promote.
　　（四）租賃
(4) the lease
　　嚴格地說，它與承包經(jīng)營管理屬于同一類型，因為工程所有權(quán)沒有改變，只是所有權(quán)與經(jīng)營管理權(quán)分離得更進一步，租賃者在經(jīng)營管理上有更多的自主權(quán)。租賃者可以從直接或間接的經(jīng)營利潤中獲取報酬，同時也承擔更多的經(jīng)濟責任和風險。因此“租賃”主要適用于經(jīng)營性較強，可以自主經(jīng)營、自負盈虧的農(nóng)村水利工程。
Strictly speaking, it and contracting management belong to the same type, because the ownership of the project has not changed, only further separation of ownership and management right, the renter have more autonomy in management. The renter can, for a price from the direct or indirect business profits, but also more economic responsibility and risk. So "lease" is mainly suitable for operational stronger, can operate independently, self-financing, rural water conservancy projects.
　�。ㄎ澹�“拍賣”經(jīng)營管理權(quán)
(5) "auction" management control
　　“拍賣”農(nóng)村水利設施經(jīng)營管理權(quán)存在三種風險：一是購買者不能取得預想利潤，甚至背上沉重的債務負擔；二是購買者掠奪式地開發(fā)水資源（機井）或工程設施，工程損壞報廢后，還得讓廣大群眾收拾“爛攤子”，重新出資投勞；三是購買者改變工程用途，讓防洪抗旱服從個人養(yǎng)殖，受害的也是廣大用水戶。這種方法主要適用于經(jīng)營性較強的工程設施。在全國２０００萬處工程中約有近３％采用“拍賣”方式。
"Auction" rural water conservancy facilities management right there are three types of risks: one is the buyers can not achieve expected profits, even back heavy debt burden; 2 it is buyer's predatory development of water resources (shaft) or engineering facilities, engineering after damage to scrap, still have to let the masses gathered "mess", contributive work-relief funds again; Three is the buyer change the project purpose, let the flood control and drought obey personal cultivation, the victims are large water users. This method is mainly used in the business strong engineering facilities. About nearly 3% in the national 20 million project "auction" way.
　　　四、履行政府職責，加強宏觀調(diào)控
Fourth, the government duties, strengthen the macroeconomic regulation and control
　　　推動農(nóng)村水利事業(yè)健康、蓬勃發(fā)展，要抓好三個關鍵：一是發(fā)揮農(nóng)民群眾主體作用，解決體制不順的問題；二是靈活運用市場機制，加強經(jīng)營管理，解決運行機制不活的問題；三是加強政府引導扶持，做好服務監(jiān)督，提供必要的公共服務和公共產(chǎn)品，為體制與機制改革創(chuàng)造有利的環(huán)境條件，三者缺一不可。第四，提供資金、材料設備等扶持，包括正常情況下的資金補助和發(fā)生特大自然災害時的補助；第五，通過建立和完善基層技術推廣服務體系，提供工程建設與管理中的技術指導、信息、培訓、科普宣傳等服務；第六，對農(nóng)村水資源開發(fā)利用、農(nóng)村水利經(jīng)營管理等進行監(jiān)督，防止政府補助經(jīng)費、農(nóng)民集資和收取的水費被截留挪用，防止無償平調(diào)農(nóng)民投工，防止壟斷公共資源、侵害農(nóng)民利益等違法情況發(fā)生。
Promote health and booming rural water resources projects, should pay special attention to the three key: one is to play a role of peasants subject, solve the problems of the system; Second, flexible use of market mechanism, strengthen management, solved the problem of living of the operating mechanism; Three is to strengthen government guide farmers, completes the service supervision, provide necessary public services and public products, create favorable environmental conditions for system and mechanism reform, the landscapes themselves. Fourth, to provide funds, materials, equipment and other support, including funding for normal conditions for subsidies and catastrophic natural disasters; Fifth, through establishing and perfecting technical extension service system at the grass-roots level, to provide technical guidance in the engineering construction and management, information, training, science popularization and other services; Sixth, water resources development and utilization in rural areas, rural water conservancy management supervision, prevent the government subsidies, farmers raise and collection of water interception misappropriate, prevent TouGong level farmers free of charge, to prevent the monopoly of public resources, farmers interests such as illegal case.
　　關于小型農(nóng)村水利改革的名稱問題。許多人把小型農(nóng)村水利改革歸結(jié)為“產(chǎn)權(quán)制度改革”，這是不準確的，它沒有全面、準確地表達出農(nóng)村水利改革豐富的內(nèi)涵和關鍵所在，容易使人誤解，似乎只要解決了產(chǎn)權(quán)問題，一切問題都迎刃而解，甚至“一賣了之”。產(chǎn)權(quán)制度改革是農(nóng)村水利改革內(nèi)容的一部分，但不是全部。在以服務為宗旨，非營利性質(zhì)的前提下，過分強調(diào)“產(chǎn)權(quán)”，沒有太多實質(zhì)意義。所有權(quán)一定要明晰，所有者主體一定要到位，這是改革的切入點。因此，小型農(nóng)村水利改革應當概括為建設與管理制度改革，也可以簡稱“管理制度改革”。
About the name of a small rural water conservancy reform. To many small rural water conservancy reform property right system reform ", this is not accurate, it does not fully and accurately express the rich connotation of the reform of rural water conservancy and key, easy to misleading, seem to be as long as can solve the problem of property rights, all problems are solved, and even "YiMaiLeZhi". Property right system reform is part of the rural water conservancy reform content, but not all of them. In terms of service for the purpose, under the premise of non-profit, too much emphasis on "property rights", don't have much substance. Property rights must be clear, the owner subject must be in place, this is the breakthrough point of the reform. So small rural water conservancy reform should be summed up as the construction and management system reform, can also be referred to as "management system reform".