Toolkit: Approaches to Private Participation in Water Services Module 5 Setting Service Standards,...

Toolkit: Approaches to Private Participation in Water Services

Module 5

Setting Service Standards, Tariffs, Subsidies & Financial Arrangements

Introduction:

Navigating through this E-Learning Module This is one of 9 Toolkit e-learning Modules. Each Module is created in PowerPoint, and you advance through the Module by pressing the right arrow or ‘Enter’ button. Core Module: The Module takes you sequentially through four or five major issues, depending on the Module. The progress through the Module is shown by the colored area on a logo on the top right hand corner of each slide. Here is an example: Supplementary Content: The Core module covers all key issues. However, you can choose to access additional information. These supplementary slides can be accessed by passing the cursor over colored buttons. The button colors relate to issues of various levels of detail:

Navigation through the supplementary material is also by pressing the right arrow or ‘Enter’ button. At the end of each section you will return automatically to the core Module. However, there is an extra button (to pass over) on the top right hand of each supplementary page that gives you the option of a shortcut back to the core Module:

Basic Concept Detail

Expert insight

Supplementary Information / Case studies

Back to Module

E-learning design: [email protected]

Elements of the Toolkit

TOOLKITTOOLKIT

1ConsideringPrivate Participation

2Planning the Process

5Standards, Tariffs, Subsidy, Financials

4Setting Upstream Policy

3Involving Stakeholders

6Responsibilities & Risks

7Developing Institutions

8Designing Legal Instruments

9Selecting an Operator

Additional MaterialCD-ROM

Appendix BPolicy Simulation

Model

Appendix AExamples of PP Arrangements

General Outline of Toolkit

TOOLKITTOOLKIT

1ConsideringPrivate Participation

2Planning the Process

4Setting Upstream Policy

3Involving Stakeholders

6Responsibilities & Risks

7Developing Institutions

8Designing Legal Instruments

9Selecting an Operator

Additional MaterialCD-ROM

Appendix BPolicy Simulation

Model

Appendix AExamples of PP Arrangements

Module 5

5Setting Service

Standards, Tariffs, Subsidies &

Financial Arrangements

Module 5Setting Service Standards,

Tariffs, Subsidies & Financial Arrangements

Module 5 - What will we learn?

What are the issues to get effective private and public financing for Private Participation?

Can we define realistic, affordable targets for Coverage and Quality of Service?

Management Contract for

Jordan Valley Authority,

Irrigation Water Supply, may be

the first of its kind.

What are the key issues

in establishing a mix of

Tariff and Subsidy?

What is the importance of Cost

Recovery?

How are Levels of

Services, Cost,

Tariffs and

Subsidies

interlinked?

Balancing Service Standards, Tariffs & Subsidies

‘In this Module we describe an iterative process, to answer the question “How can we afford better services under a new Arrangement”?’

Set Tariffs & Subsidies


Estimate Cost Estimate Cost

Specify Services Specify Services

YES Does it work?

NOIMPLEMENT• Design• Finance

START

There is a need to balance Level of service with Level of Tariffs.

Better service costs more.

Governments have the task to decide what is affordable.

The diagram illustrates the elements and the process followed in this Module

There is a need to balance Level of service with Level of Tariffs.

Better service costs more.

Governments have the task to decide what is affordable.

The diagram illustrates the elements and the process followed in this Module

Balancing Service Standards, Tariffs &

Subsidies

IMPLEMENT





YES Does it work?

NO• Design• Finance

START

Setting Level of Service is an iterative process.

First, having chosen a proposed Level of Service, then there is a need to Specify the Services technically.

Setting Level of Service is an iterative process.

First, having chosen a proposed Level of Service, then there is a need to Specify the Services technically.

Then it is necessary to Estimate the Cost of the level of service and of any related investment.

Then it is necessary to Estimate the Cost of the level of service and of any related investment.




Subsidies

IMPLEMENT





YES Does it work?


STARTThe Government then has decide:

whether the Cost of this level of service can be supported, and

what Tariff Levels need to be set for effective cost recovery.

if any Subsidy has to be used to make an

affordable service to the customer including Type of Subsidy).

The Government then has decide:

whether the Cost of this level of service can be supported, and

what Tariff Levels need to be set for effective cost recovery.

if any Subsidy has to be used to make an

affordable service to the customer including Type of Subsidy).



Subsidies

IMPLEMENT





YES Does it work?


START

Estimating the Trade off between Level of Service and Tariff/Subsidy is best done with a financial model such as the one provided with the Toolkit.

If the Cost of Services proves too high then the process is iterated, amending the elements, until a satisfactory balance between Level of Service and Tariff is found.

Estimating the Trade off between Level of Service and Tariff/Subsidy is best done with a financial model such as the one provided with the Toolkit.

If the Cost of Services proves too high then the process is iterated, amending the elements, until a satisfactory balance between Level of Service and Tariff is found.

When the Balance between Cost of Service and Tariff is satisfactory, then we can proceed with the design and Implementation of the chosen arrangement

When the Balance between Cost of Service and Tariff is satisfactory, then we can proceed with the design and Implementation of the chosen arrangement

In the final sections of the Module we discuss:

Implications for Design of PP Arrangements

Guidance on Structuring Finance for the Arrangement.

In the final sections of the Module we discuss:

Implications for Design of PP Arrangements

Guidance on Structuring Finance for the Arrangement.

Specifying Service Levels

‘To start the process we need to choose preferred Levels of Service and define the technical and operational basis needed to reach these service levels.

IMPLEMENT





YES Does it work?


START

First we look at how service goals are set for the Utility under the proposed Private Participation Arrangement

Two main issues to be defined:

Coverage of service

Quality of service

Specifying Service Levels

‘To start the process we need to choose preferred Levels of Service and define the technical and operational basis needed to reach these service levels.

IMPLEMENT





YES Does it work?


START

First we look at how service goals are set for the Utility under the proposed Private Participation Arrangement

Two main issues to be defined:

Coverage of service

Quality of service

Service Coverage Targets

Service Quality Targets

Estimating Cost of Services

IMPLEMENT





YES Does it work?


START

‘Once initial objectives have been set, Government should estimate the cost of providing the service.’

Cost of Service

“When a Utility cannot cover its cost, service will suffer”

Estimating Cost of Service:

Once initial objectives have been set, Government should estimate the cost of providing the service. Average costs are used as an effective basis.

This is an important step, since it will be important to determine to what extent Cost Recovery can be achieved by the chosen Tariff level.

The reasoning behind this assessment of the level of Cost Recovery is that : "When a Utility cannot cover its cost, service will suffer”If you cut back on essential expenditure (Examples: Chemicals, Pump replacement or

expansion of the network) the services suffer. Similarly reduction in maintenance, renewal or expansion of the system may also increase the costs of operation in the medium term

Cost estimating is difficult and technical, but need to look at three main elements:● Operating & Maintenance Expenses● Depreciation ● Return on Capital

Essential to first have a clear idea of total costs, then you can separately decide whether the tariff should cover all of those costs, or whether tax payers should subsidize the service.

Estimating Cost of Service:

Once initial objectives have been set, Government should estimate the cost of providing the service. Average costs are used as an effective basis.

This is an important step, since it will be important to determine to what extent Cost Recovery can be achieved by the chosen Tariff level.

The reasoning behind this assessment of the level of Cost Recovery is that : "When a Utility cannot cover its cost, service will suffer”If you cut back on essential expenditure [Examples: Chemicals, Pump replacement or

expansion of the network] the services suffer. Similarly reduction in maintenance, renewal or expansion of the system may also increase the costs of operation in the medium term

Cost estimating is difficult and technical, but need to look at three main elements:● Operating & Maintenance Expenses● Depreciation ● Return on Capital

Cost of Service

“When a Utility cannot cover its cost, service will suffer”

Essential to first have a clear idea of total costs, then you can separately decide whether the tariff should cover all of those costs, or whether tax payers should subsidize the service.

Operating & Maintenance;Depreciation; Return on Capital

Depreciation:Capital Maintenance

Cost recovery and tariff implications

‘Can we afford to pay for better services?’

IMPLEMENT





YES Does it work?


START

“To be viable: Tariffs + Subsidies = Total Cost of Service”

Service Quality

Service Coverage

COST OF SERVICE

TARIFF INCOME

Cost Recovery and Tariff

INCENTIVES

SUBSIDY

Cost of Service tells Government how much it will cost to provide the service.

In addition to Service Coverage and Quality costs, Governments need to consider:● Annual cash needs of the utility and

financial ratios required by lenders (e.g. debt repayment rates)

● Environmental or social costs that the government decides should be borne by the Utility

Cost of Service tells Government how much it will cost to provide the service.

In addition to Service Coverage and Quality costs, Governments need to consider:● Annual cash needs of the utility and

financial ratios required by lenders (e.g. debt repayment rates)

● Environmental or social costs that the government decides should be borne by the Utility

Next step is to determine how much should be recovered through Tariffs.

Next step is to determine how much should be recovered through Tariffs.

If not full cost recovery from the Tariff (if Cost of Service exceeds Tariff income) :

either Subsidies will be needed, or Services need to be lowered.

If not full cost recovery from the Tariff (if Cost of Service exceeds Tariff income) :

either Subsidies will be needed, or Services need to be lowered.

“To be viable: Tariffs + Subsidies = Total Cost of Service”

Service Quality

Service Coverage

COST OF SERVICE

TARIFF INCOME

Cost Recovery and Tariff

INCENTIVES

SUBSIDY

Willingness to PaySocial AcceptabilityExternal Benefits

Tariff Setting:Three reasons why a tariff for full cost recovery may be considered too high:

● Willingness to Pay: The extent to which people are unwilling to pay the full cost of service● Social Acceptability: People are willing to pay but it is considered socially unacceptable to pay

what the service costs require● External Benefits: Environmental or Public Health issues make it beneficial to charge less

Tariff Setting:Three reasons why a tariff for full cost recovery may be considered too high:

● Willingness to Pay: The extent to which people are unwilling to pay the full cost of service● Social Acceptability: People are willing to pay but it is considered socially unacceptable to pay

what the service costs require● External Benefits: Environmental or Public Health issues make it beneficial to charge less

Use of Subsidies

‘If Cost of Service exceeds Tariff income, then a Subsidy will be needed’

IMPLEMENT





YES Does it work?


START

OUTPUT BASED

INPUT -BASED

Paid to Money from

Customer to help pay the bill

Utility/Operator for outputs

Utility/Operator for inputs

Utility or Operator as implicit or ad hoc support

Customer Revenue

Government Revenue

Development Agency grant or loan with concessional element

Types of subsidy

‘Private Participation can involve suitable subsidy arrangements’

Who Subsidy paid ToWho Subsidy paid To

Whe

re S

ubsi

dy c

omes

F

rom

Whe

re S

ubsi

dy c

omes

F

rom

This Table illustrates some of the main categories of Subsidies. Subsidies can be categorized:

Where the money comes from?:● Customer Revenue● Government Revenue● Development Agency Grant or Loan with concessional element. (These are generally used to make structuring a subsidy fund

easier, or for easing in a new tariff structure in the short term)

Where subsidies are paid to and for what?

This Table illustrates some of the main categories of Subsidies. Subsidies can be categorized:

Where the money comes from?:● Customer Revenue● Government Revenue● Development Agency Grant or Loan with concessional element. (These are generally used to make structuring a subsidy fund

easier, or for easing in a new tariff structure in the short term)

Where subsidies are paid to and for what?

Types of subsidy

OUTPUT BASED

INPUT -BASED

Paid to Money from





Customer Revenue

Government Revenue


Donor

Financed Output–based

Aid

Customer bail-out

Implicit subsidy or bail-out

Cross-subsidy

Social security provisions

Input subsidy

‘We will look at some specific Input and Output Subsidy forms….’

Input Based Subsidy

Traditionally subsidies were paid to help utilities recover their costs (Input Based Subsidy).

However, this supports the costs, not the results.

Input Based Subsidy

Traditionally subsidies were paid to help utilities recover their costs (Input Based Subsidy).

However, this supports the costs, not the results.

Output Based Subsidy

A better approach (and especially where a Private Operator isinvolved) is to make payment contingent on specific outputs, or Output Based Subsidy.

Output Based Subsidy

A better approach (and especially where a Private Operator isinvolved) is to make payment contingent on specific outputs, or Output Based Subsidy.

Now we will look at the various forms of Input and Output based subsidy in more detail

Now we will look at the various forms of Input and Output based subsidy in more detail

Types of subsidy

OUTPUT BASED

INPUT -BASED

Paid to Money from





Customer Revenue

Government Revenue


Donor

Financed Output–based

Aid

Customer bail-out

Implicit subsidy or bail-out

Cross-subsidy

Social security provisions

Input subsidy

‘Private Participation can involve suitable subsidy arrangements’

Output Based Subsidy Input Based Subsidy

Output Based Aid:Expert Insight

Subsidy:Targeting the Poor


Subsidies

‘This is an iterative process. Can we afford better services?’

IMPLEMENT





YES Does it work?


START

“Develop options, looking for an acceptable trade-off between tariffs, services and subsidies”

Finalizing Tariff, Subsidy and Service Level

INCENTIVES

COST OF SERVICE

TARIFF INCOME

SUBSIDY

4. Now we have reached the point where we have to consider if we have reached a Balance between Costs and Tariffs. If the tariff/subsidy revenues are not sufficient then we can look at various alternative ways of adjusting our tariff/cost of service arrangements, for example:

Adopt cost recovery tariffs for all customers Set Tariffs below cost for some customers and apply a subsidy Reduce costs (and thus necessary tariff levels) by reducing coverage and service levels

Balancing the cost & tariff issues

Once we are happy with the balance between Cost, Tariff and subsidy we can proceed to incorporate them into the design of the Private Participation Arrangement.

Following our Process, we have:1. Arrived at Cost of Service

Following our Process, we have:2. Looked at acceptable Tariff scales

Finally we have:3. Evaluated any necessary subsidies

‘What key issues should we include in the Private Participation Arrangement design?’

IMPLEMENT





YES Does it work?


START

Design & Implement:Design Issues

Design Issues

The Arrangement has to cover various issues:

– Cost of Service = Management Costs + Operations + Capital Investment

– Operator’s fee in a Management Contract may be financed by others, and payment linked to outputs.

– Investment elements in lease and management contracts can be partially financed by governments, investors and operators

– Concession models have been developed that can include subsidy, such as using Output Based Aid, retaining Government control of how the subsidy is used

“PP is possible even if Tariffs don’t cover costs”

The Private Participation Arrangement has to be clearly defined to show where the funds to cover all costs of service will come from. These costs include the cost of Management and all necessary Capital Investment as well as the Operational Costs needed to provide the Service.Examples:

Guyana Management Contract: Donors finance the Operator’s Management Fee Operator not affected by financial health of utility

Amman, Jordan : Performance-based Management contract Operator’s performance links to a profit sharing incentive

Design Issues







Comment: Use of Aid in Concession models

For Concessions it was sometimes though that either the tariff had to have full cost recovery or the government was committed to increase tariffs accordingly. This is because in a concession the operator has to cover all costs, including investment, from revenues. However, subsidies can be combined with concessions, and Output based Aid can help to recover costs as well as improve services

Example: Partial Investment by Operator: Senegal, ONES : Affermage- lease contract with Operator used to transfer substantial responsibilities to

the Operator but with only a limited investment Total investment too large to be financed by the private operator, covered by

Government. The Government asset holding company took remaining major investments in bulk water transport and distribution

Design Issues







Example: Amman Management ContractCost Recovery for O&M

Design & Implement:Financing Implications

‘How to involve private and public finance?’

IMPLEMENT





YES Does it work?


START

Private Finance

“What might be the potential sources of funding for a prvately financed project?”

First we should be aware of some of the potential SOURCES OF FINANCE: o Equity from a project promoter o Equity from other investors o Loans – local or foreign banks o Bonds o Export Credit Guarantees Finance o Loans from development agencies o Grants from development agencies

The actual project funding could be a mix of various finance sources.

For example: The operator could put up 30% of the investment required, with the remainder from banks or other financial institutions.

The actual project funding could be a mix of various finance sources.

For example: The operator could put up 30% of the investment required, with the remainder from banks or other financial institutions.

Private Finance

What issues to consider when involving Private Finance?

The way that the arrangement is designed, and the security offered against risks will affect the perception of operators, investors and lenders about the level of risks involved and ultimately the viability and cost of the project . This in turn will affect the level of investment cost, and in this in turn affects the cost of provision of service under the Private Participation arrangement [Risk allocation is an important subject dealt with in Module 6 ]

- The cost recovery potential and tariff stability are issues that will have a direct bearing on this.

Need to consider the views of potential lenders at the arrangement design and bid stages to ensure that a viable project can be put out to bid, and that investors will be interested to be involved

The amount of investment required needs to be considered, to ensure that debt levels and risk are viable. The phasing and type of investment can be considered in order to rapidly increase cash flow, allow the operator to reduce costs and free up cash later for more investment

.

Arrangement Type Private Operator Public Finance

Management Contract

o Operator brings efficiencies

o Operating cost income needed

o Capital investment needed

o Operating costs by government

o Investment needed to support effective operational improvement

o Capital investment needs are defined by government

Affermage Lease

o Operator brings efficiencies’

o Revenues cover operational cost

o Insufficient cash flow to cover investment

o Operator can prepare investment program for needed improvements

o Investment for identified capital works

o Need to use operator’s insights in required investment

o Need to control size and use of investment

Concession o Revenues cover operational and investment costs

o Can mobilize substantial amounts of private capital

o Government finance can subsidize to meet water sector goals.

o Involving development agencies may lower costs through cheaper finance

Involving Public Financing

“There is still a place for Public Financing. The needs differ for each PP Arrangement type”

These three types of arrangement have an

increasing involvement from private sector finance, with a potential role for public sector finance in all three types:

These three types of arrangement have an increasing involvement from private sector finance, with a potential role for public sector finance in all three types:

Management Contracts bring focused management skills and efficiency to a utility. Where the utility is in financial difficulty , then public finance will be needed for operational and capital investment costs.

Public or development agency finance will be needed to support the reforms being implemented by the operator, for example replacing pumps, emergency works, training, as the major improvements will not be attained with management effort alone.

Management Contracts bring focused management skills and efficiency to a utility. Where the utility is in financial difficulty , then public finance will be needed for operational and capital investment costs.

Public or development agency finance will be needed to support the reforms being implemented by the operator, for example replacing pumps, emergency works, training, as the major improvements will not be attained with management effort alone.

Affermage- lease contracts:

Although the utility may be generating sufficient cash flow to cover operating costs, it may not be enough to service borrowings.

The operator can propose a capital works investment program that will achieve the operational and financial improvement targets to be funded by the public sector.

To be successful there is a need to ensure that there is adequate capital in the utility, but to ensure that there is not excessive borrowing or investment

Affermage- lease contracts:

Although the utility may be generating sufficient cash flow to cover operating costs, it may not be enough to service borrowings.

The operator can propose a capital works investment program that will achieve the operational and financial improvement targets to be funded by the public sector.

To be successful there is a need to ensure that there is adequate capital in the utility, but to ensure that there is not excessive borrowing or investment


Management Contract







Affermage Lease













“There is still a place for Public Financing. The needs differ for each PP Arrangement type”

Concessions:

The fact that governments can mobilize substantial amounts of finance through private funds does not mean that it should rely entirely on private finance. Public or development agency finance can:

Concessions:

The fact that governments can mobilize substantial amounts of finance through private funds does not mean that it should rely entirely on private finance. Public or development agency finance can:

Be focused to subsidize water infrastructure to achieve specific social or development goals• Make use of development agency rather than private funds, this may reduce total cost of fundsOptions to use public funds in concessions include:

Government lending to the concession company or equity investment (joint ownership)

Direct financing of some infrastructure (so no return for the Concessionaire)

Government OBA fund to extend service to new areas


Management Contract







Affermage Lease













“In practice it is possible to adapt the main contract models, to form Hybrid Arrangements to suit the specific PP needs”

Hybrid Arrangements:

These main contract models can be adapted or tailored to suit actual project conditions.

As an example:

Limited investment by the Operator in a Management Contract or Affermage can sometimes be obtained, often with additional guarantees provided for the Operator, in order to support key investments necessary to ensure operational improvement (e.g. network meters, spare parts).

Hybrid Arrangements:

These main contract models can be adapted or tailored to suit actual project conditions.

As an example:

Limited investment by the Operator in a Management Contract or Affermage can sometimes be obtained, often with additional guarantees provided for the Operator, in order to support key investments necessary to ensure operational improvement (e.g. network meters, spare parts).

Fund(investment or subsidy)


AgencyAgency

Private OperatorPrivate Operator

Investment Lending

Monitoring

Payment per Output

GovernmentGovernment



AgencyAgency


Investment Lending

Monitoring

Payment per Output




AgencyAgency


Investment Lending

Monitoring

Payment per Output


A Development Agency Finance Arrangement

“One possible model for securing effective disbursement”

This figure illustrates one possible structure for incorporating government and development-agency financing in an arrangement, showing a public investment or subsidy fund established by Government and a development agency. It is not the only model, but gives some ideas of one approach.

This incorporates two options:

Investment lending : Finance from the public fund as a loan to the operator – to invest in infrastructure

Payment per output: The subsidy fund would make payment when the operator provides specified services:

Example:

Major investments needed to replace decaying pipe networks could be an unacceptable risk for the private operator if he had to provide the necessary investment himself.

Example:

Major investments needed to replace decaying pipe networks could be an unacceptable risk for the private operator if he had to provide the necessary investment himself.

Example:

The operator makes new connections as part of his contract .

For those in low income areas he receives a specific fee – say, for example, $150 per connection

Example:

The operator makes new connections as part of his contract .

For those in low income areas he receives a specific fee – say, for example, $150 per connection

‘In this Module we have considered the elements and process of establishing affordable Levels of Service, and some of the design and financing implications….’





YES Does it work?

NOIMPLEMENT• Design• Finance

START

Reviewing Module 5

Checklist: Module 5

Understand what services customers want

Evaluate external benefits from service

Define coverage and service objectives

Establish method for defining cost recovery

Evaluating operations and maintenance costs

Define methodology for calculating depreciation

Value asset base and estimate cost of capital

Estimate future efficiencies

Evaluate how much customers are willing and able to pay

Identify sources of external subsidies

Review alternative subsidy schemes

Revisit service objectives if service is too expensive

Select model of private participation

Define the financial terms of the arrangement

Specify operator’s coverage and service targets

Assign responsibilities for setting and monitoring standards

‘……..and the process is detailed in this Checklist”

More Information: Module 7

More information on Setting Service Standards, Tariffs, Subsidies, and Financial Arrangements:

Definition of service standards: Baker and Trémolet 2000, Estache and others 2002, Smith 2003, and Trémolet 2002.

Health and environmental benefits from water and sanitation: Whittington and Swarna 1994.

The desirability of cost recovery: Environmental Resources Management 2003a and Snijar and Syme 1998.

Regulatory accounting and methods of estimating costs: Green and Pardina 1999 and PPIAF and World Bank Institute 2002.

Estimating the cost of capital: Green and Pardina 1999 (Chapter 9) and Alexander 2000.

Benchmarking water utilities: Kingdom 1999 and Tynan and Kingdom 2002.

Customers’ willingness to pay: Gómez-Lobo and others 2000, McPhail 1993, Singh and others 1997, Whittington and others 1991, and Whittington 1998.

Use of willingness to pay surveys in the context of private participation : see Box 3.1 and Chapter 3, UNDP and others 1999, Water and Sanitation Program 2002b, and Whittington and others 1998.

Social acceptability: Plummer 2000, UNDP and others 1999.

Affordability: UNDP and others 1999, Whittington 1992, and Whittington and others 2000.

Rationale for and evaluation of subsidies: Estache and others 2002, Foster and others 2000, Irwin 2003, Mehta 2003, Whittington 1992.

Output-based aid (OBA) and approaches: Brook and Smith 2001, Drees & others 2004, EconOne Research 2003, Foster and others 2000, Global Partnership on Output Based Aid Web page (www.gpoba.org), Gómez-Lobo 2001a and 2001b, Marin 2002, Mumssen 2004, Yamamoto and Hunt 2005

Information on financing: Brealey and Myers 2000, Delmon 2001, Finnerty 1996, Hoffman 1998, Levy 1996, Nevitt and Fabozzi 2000, PricewaterhouseCoopers n.d.,Yescombe 2002

Supporting Material

• The Toolkit Financial Model• Toolkit Case Study material• Toolkit Website:

http://rru.worldbank.org/Toolkits/WaterSanitation/• For comments or further details contact Cledan Mandri Perrott at

[email protected]

http://rru.worldbank.org/Toolkits/WaterSanitation/

mailto:[email protected]

Toolkit: Module 7

End of Module

Toolkit: Module 7

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