ࡱ> } kbjbj55 P ___ /"Q8-d'RV%;QQQ >%!9! QQQQQQQ}TWBQH$ ^ H$H$QmmQQ8Q(((H$mRQQQ(H$Q(( Jd"MQ O6%K"QQ0'RKaW&<aWDMMaWN4E!!^('"Ls"E!E!E!QQ'E!E!E!'RH$H$H$H$aWE!E!E!E!E!E!E!E!E! :    Foreword The Victorian Farmers Federation is Australias largest state farmer organisation, and the only recognised, consistent voice on issues affecting rural Victoria. The VFF represents 19,000 farmer members, representing 15,000 farm enterprises. The VFF consists of an elected Board of Directors, a member representative Policy Council to set policy and eight commodity groups representing dairy, grains, livestock, horticulture, chicken meat, pigs, flowers and egg industries. Farmers are elected by their peers to direct each of the commodity groups and are supported by Melbourne-based staff. Each VFF member is represented locally by one of the 230 VFF branches across the state and through their commodity representatives at local, district, state and national levels. The VFF also represents farmers views on hundreds of industry and government forums.  EMBED Imaging.Document  Simon Ramsay President I. Introduction The VFF welcomes the opportunity to comment on the Australian Competition and Consumer Commission (ԭ) issues paper on charge rules for Irrigation Infrastructure Operators (IIO). The VFF notes that the ԭ water charges rules issues paper relates to fees and charges in relation to access to an IIOs network or the termination of access to an operators network. Issues relating to bulk water charges and charges levied to recover the costs of water planning and management will be managed through separate consultation processes. The VFF supports ԭ having an enhanced role in water charges and market rules, to ensure efficient and transparent water markets and charges in the Murray Darling Basin. However, the VFF believes that the process of setting water charges at the Victorian State level through the Essential Services Committee (ESC) should remain, possibly through an accreditation of ESC by the ԭ. The VFF maintain that appropriate and consistent water charge regimes, both access and termination fees, across state boundaries are vital for fair trade in water and to ensure irrigators do not suffer from rising prices when water is traded out of an area. This approach is consistent with an equity approach through competitive neutrality; provides a level playing field; and provides incentives to accelerate progress and achieve shared reform objectives of the Murray Darling Basin Governments. Water price is of most importance for rural customers. For many irrigation farmers, water is a large component of total farm costs. Farmers are unable to pass on to their customers higher water costs. An increase in water prices can directly affect the viability of farm businesses. For this reason, farmers, particularly irrigation farmers, take an active interest in water issues. The security of their rural water supply can determine the future of their farming business. The VFF has a number of specific observations on the issues paper. They relate to areas the VFF believe need further exploration and attention. III. Basin Water Charging Objectives and Principles: The paper lists five water charging objectives to be achieved through water charges rules, these include: (a) to promote the economically efficient and sustainable use of: (i) water resources; and (ii) water infrastructure assets; and (iii) government resources devoted to the management of water resources; and (b) to ensure sufficient revenue streams to allow efficient delivery of the required services; and (c) to facilitate the efficient functioning of water markets (including interjurisdictional water markets, and in both rural and urban settings); and (d) to give effect to the principles of user-pays and achieve pricing transparency in respect of water storage and delivery in irrigation systems and cost recovery for water planning and management; and (e) to avoid perverse or unintended pricing outcomes. The VFF believes these objectives do not adequately address the concerns of rural water users. The socio-economic impact of water in production should be recognized and addressed through water charges rules to achieve the water charging objectives. While the listed objectives mention the need to to facilitate the efficient functioning of water markets (including interjurisdictional water markets, and in both rural and urban settings), it does not seem to adequately reflect the importance of social and economic impacts on the transfer of water. The ԭ issues paper notes that an efficient, well functioning water market can reveal the value of water to existing and potential users, leading to more productive and efficient use of water resources over time... (page 14). The VFF believe a water market that is not based on level playing field will lead to structural adjustments such as contraction in the demand for complementary agricultural services and output from districts. This may result in significant and rapid changes to the demographics population and sustainability of communities. The VFF also notes with concern that the ԭ paper refers to interjurisdictional water markets, and in both rural and urban settings...(Page 12). The VFF believes that the impact on third parties in terms of regional effects must be accorded sufficient consideration when determining water market rules, specifically for urban-rural trading. The VFF has highlighted that as water is removed from rural communities, jobs and wealth creation will also disappear and will result in further urban migration. The VFF welcomes an extensive and wide-spread consultation being undertaken for the appropriate regulatory measures to implement. This is important in alleviate the level of risk associated with any regulatory exercise. In this regard, the VFF believes there are a number of simple things the ԭ and water authorities could do to make the process work better. Spring and early summer is a very busy time for farmers. It would be much more appropriate to conduct the consultative process on water plans when farmers are less busy. The VFF believes the consultative process should occur between the end of June to end August. The period mid February to end of March could also be considered although autumn is a very busy period for horticulturalists. We also believe the format and presentation of water plans should follow a standard and consistent format. Water plans should succinctly enable customers to assess the outcomes that will be delivered, the costs involved and the prices to be charged. Greater attention should be paid to ensuring the documents are written in plain English with minimal use of technical terms. IV. Methodological Issues: In general the VFF supports the water charging objectives and principles adapted from the National Water Initiative (NWI) pricing principles in the regulation of natural monopoly infrastructure, particularly the principles of economic efficiency, the avoidance of monopoly rents and the sustainability of revenue and natural resources. However, the VFF supports a cost recovery approach only for costs associated with water delivery. Water price is of most importance for rural customers. For many irrigation farmers, water is a large component of total farm costs. Farmers are unable to pass on to their customers higher water costs. An increase in water prices can directly affect the viability of farm businesses. The VFF believe that if externalities are to be considered in a water charging regime, both positive and negative externalities must be accounted for including discounts for positive elements and costs for negative impacts. As an example, a positive impact to be considered is the ability of water used in agricultural production to provide high quality food at affordable prices to the whole community. Failure to consider such an impact will effectively cut agricultural production and place upward pressures on food prices. Reclaimed Water Pricing As a further and specific response to Question 1, the VFF believes that Prices paid for Reclaimed Water should attract special attention in establishing a methodology for determining water prices. In years to come there will be greater use of recycled water in agriculture. Currently there are a number of inconsistencies in the pricing of recycled water. The VFF believes the ԭ should establish and publish firm guidelines for pricing recycled water. Recycled water must be priced consistently and competitively with other supplies. It is unreasonable to expect farmers using recycled water to pay a higher price than their competitors using traditional supplies. The principle of polluter pays should be applied to pricing of recycled water. This would mean urban customers should bear the cost of treating and recycling waste water and providing it to users at prices competitive to alternate supplies. In Victoria, the Government has a target of recycling 20% of Melbournes waste water by 2010. Competitive pricing of recycled water will be essential if this target is to be achieved. In the ovens system there is proposed works to upgrade the spillway on Lake William Hovell. This dam has served the community well and has averaged approximately 60000ML of spillage per annum, for the benefit of the Basin. Currently G-MW charges Zone 6 and 7 $7.11 /ML headworks charge. Ovens Irrigators are being asked to approve a headworks charge that will be approx $30 in 2009 and $60 in 2010. The VFF would suggest that the 60000 ML /annum that the Murray Irrigators and the Environment received, that caused the spillway to wear out and require the $7M to repair, may well be moved on the ledger to the Murray irrigators. The VFF has conducted a study on the Issues for Farmers Considering the Use of Reclaimed Water for Agriculture in 2008. The following are observations extracted from the VFF study: 1. ESC utilizes the following guidelines for the pricing of reclaimed water: (a) Prices must be set so as to maximise revenue earned (by water suppliers) from recycled water services having regard to the price of any alternative substitutes and customers willingness to pay (b) Prices must include a usage component in order to provide appropriate signals to recycled water customers to manage resources (c) Any revenue shortfall arising from schemes required to meet mandated targets will be recovered through bulk water charges to the metropolitan retail water businesses 2. The NSW Government pricing regulator has established more comprehensive guidelines for the pricing of recycled water, at least for retail customers. In essence these guidelines suggest that users of recycled water should meet the cost of distribution and the treatment costs involved additional to that necessary to meet discharge license standards The exception to this is that other water and sewerage users should meet a component of the cost of recycling equivalent to the avoided or deferred costs generated by the scheme. Recycled water schemes may enable a water and sewerage provider to avoid and/or defer costs. For example, this occurs where capital infrastructure upgrades to service growth or regulatory requirements are avoided or deferred by building a recycled water scheme. 3. It is worth stressing that in Victoria the principal objective of monopoly suppliers of reclaimed water is to maximize their revenue. The regulatory pricing guidelines in NSW are a slight improvement on the Victorian situation but even here water customers have no way of knowing the extent to which reclaimed water schemes enable water or sewerage providers to delay or defer costs. 4. In summary the existing pricing guidelines for reclaimed/recycled water adopted by both the Victorian and NSW regulators provide little comfort to reclaimed water customers that the prices charged by monopoly suppliers are fair and reasonable. 5. In practice, prices for recycled water used in agriculture are established through commercial negotiations between customers and suppliers. The suppliers of reclaimed water will seek to charge what the market will bear. Customers willingness to pay for recycled water will depend on a range of issues including: The price and security of alternative water source Competition for recycled water Costs of switching to recycled water Profitability of enterprise Quality, security and reliability of supply of reclaimed water. Equity with existing customers and nearby recycling schemes. Perception of risks associated with use of recycled water Costs involved in complying with regulations associated with use of recycled water. In negotiating prices for recycled water, customers or potential customers frequently face a substantial imbalance in negotiating power. This is particularly so if, as has often occurred in Victoria, negotiations for the supply of recycled water occur when access to alternative supplies is threatened by seasonal conditions or other factors. Farmers should not assume water authorities offering reclaimed water are from the Government and are therefore there to help them. In price negotiations water authorities principal objective will be to maximize revenue from reclaimed water sales (just as it is the farmers objective to minimize their costs). 6. In general the ԭ has been accommodating in assisting small business collectively bargain with larger business, be they private or government businesses. In the overwhelming majority of cases the ԭ has allowed collective bargaining arrangements to proceed finding them in the public interest. V. Service Standards and Obligations: The VFF believes that the most important task of rural water authorities is cost efficient delivery of water to customers. Accordingly the most important performance standard authorities should be expected to achieve relate to the cost of water services. A reasonable performance standard for Authorities should be that they achieve real reduction in operating costs. If a reduction in real operating costs does not result in a real reduction in prices an explanation for the discrepancy must be provided. VI. Expenditure Profile: The VFF notes that different water authorities have different approaches to fund the renewal of irrigation infrastructure. Southern Rural Water and Lower Murray Water have proposed an annuity approach to fund the renewal of irrigation infrastructure. Goulburn-Murray Water and GWM Water have proposed a regulatory asset based (RAB) approach. The VFF does not favour one approach over the other and believes the ԭ should allow water authorities the flexibility to adopt the approach they and their customers committees believe best works for them. For this to occur there should be prior discussion with customer groups as to the relative merits of each method. The renewals annuity approach has the advantage of being well understood by customers. The adoption of renewals accounting following the McDonald Review assisted irrigators understand and accept the importance of making provision for the cost of asset replacement. On the other hand there are dangers in allowing authorities to accumulate asset replacement reserves. Furthermore the accuracy of estimates of future renewal expenditure more than 20 years into the future must be questionable. However, where an authority moves from renewals annuity to RAB a number of issues need to be addressed. There should be an obligation on authorities to explain and discuss with customers the rational and practical effect of the change. Authorities must also address the transitional issues such as management of existing renewals surpluses. Southern Rural Water has proposed a different approach to pricing from other authorities indicator prices. They have also proposed an annual price-review process, which would be subject to scrutiny by customer committees. The VFF had no objection in principle to the approach outlined by Southern Rural Water. The annual volume of water available for delivery cannot be predicted. This is the most important determinant of total revenue and the more flexible approach to pricing outlined by Southern is understandable. Furthermore, the VFF is strongly of the view that customer committees should have a significant influence on pricing decisions. If water prices are set by water plans for several years in advance the relevance of customer committees is to some extent undermined. Charging for non-core businesses Goulburn-Murray Water and Southern Rural Water have introduced a special charge on bulk urban supplies to meet the costs of providing public facilities at storages. The charges called the Regional Urban Storage Ancillary fee by Goulburn Murray and the Recreational Facilities Charge by Southern. The charge is intended to replace the 4% rate of return on urban authorities discontinued by the Government. The VFF notes the proposed charges for public facilities at storages generate significantly fewer funds than the old 4% rate of return. Furthermore the water plans provide insufficient information to enable an assessment of the revenue generated from these charges compared to the actual costs of providing and maintaining public recreational facilities at storages. It is worth noting that Goulburn Murray Water has established a Water Storage Amenity business unit. The Plan discloses the management and administration costs associated with this unit but there is no information on the revenue generated from these activities or other costs associated with the provision of public recreational amenities associated with GMW assets. The ԭ should closely examine expenditure and revenue related to the provision of public recreational facilities by water authorities. The VFFs preference is for these costs to be met either by user charges or a direct government payment. If neither of these is possible a charge levied on urban water authorities is a next best alternative. Governments Contributions The ԭ in its Issues Paper (Page 15) noted that if grants, subsidies or other contributions are made by government with the intention of benefitting customers, then charges should not include these contributions as the associated expenditure is not required to be financed by the operator. The VFF is supportive of this approach, especially with the current plans to modernize irrigation infrastructure that involve considerable investments and contributions by the Governments. However this is only part of the issue. As a result of governments policy initiatives water authorities are making substantial investments in water saving technology. These investments are in large part a reflection of a political commitment to invest in the environment. These investments are rarely subject to conventional cost benefit analysis. Water authorities are not environmental benefactors; rather they are water supply businesses. From a customers perspective it is important that there is transparency and accountability in relation to water savings investments. The water pricing plans should be explicit in relation to their expectation of government capital contributions with a sufficient level of transparency and accountability. Specifically the plans should specify: The total amount and timing of anticipated government capital contributions. The total cost of projects and thus the share of costs borne by government and customers. The sharing of benefits of the project, for example the water savings expected and how these will be split between the Government (as environmental flows) and the authority. Environmental Headworks Charges Environmental water must pay its share of systems, headworks and distribution charges. The VFF strongly opposes farmers having to store environmental water as water savings are returned to the environment as part of a modernisation program. Improved environmental water flows benefit the whole community; it is inequitable to expect farmers to meet these costs. Government must also fund the storage and delivery costs of any new water gained from infrastructure works that is then used to increase environmental flows. The VFF strongly supports that the environmental share of water savings must pay its headworks charges. As environmental water flows benefit the whole community, it is inequitable that storage costs for environmental water be borne by irrigators. The VFF also strongly support an approach where Governments pay the standard charges for water entitlements that they hold. Externalities The ԭ paper recognizes the issues associated with externalities as one of the cost blocks to estimate the expenditure profile and revenue requirement.. (page 20); however the VFF believe that if externalities are to be considered in a water pricing regime, both positive and negative externalities must be accounted for including discounts for positive elements and costs for negative impacts. As an example, a positive impact to be considered is the ability of water used in agricultural production to provide high quality food at affordable prices to the whole community. Failure to consider such an impact will effectively cut agricultural production and drive up the price of food for consumers. VII. Structure of Charges: Termination Fees The VFF maintain that appropriate and consistent termination fees across state boundaries are vital for fair trade in water and to ensure irrigators do not suffer from rising prices when water is traded out of an area. The VFF strongly recommends that collected termination fees within a district should be quarantined within that district, accounted for separately and should be used to cover any increase in charges to irrigators remaining on the system. The VFF supported the agreement between Victoria and New South Wales to accept the Australian Competition and Consumer Commission (ԭ) recommendation that exit and termination fees which apply when water permanently leaves a district should be separate from the sale of water. The factor used for the calculation of termination fees was set at a maximum multiplier of 15 times the access fee. This ensures sufficient funds to maintain water supply infrastructure over a suitable period and for structural readjustment so that remaining users are not required to absorb these costs. A review of termination fees will be completed by 1 January 2009. The review will include an assessment of the multiplier used in calculating termination fees. The ԭ had recommended that the fees should be no greater than 12 times the infrastructure access fee, reducing to 8 times the access fee after eight years. The VFF is concerned that fees at this level would not ensure a level trading field across state boundaries. Exit fees are defined in the Schedule E protocol as a fee levied by an infrastructure operator on the transfer of a water entitlement out of the infrastructure operators network or irrigation district (excluding any fee associated with the costs of processing that transfer). Exit fees remain as barrier to trade, and are still in use by some corporations and trusts, that will prevent water moving to its higher value use. It is against the principle of level playing field to impose such restrictions to protect one area from structural adjustment, since this will increase structural adjustment pressures for other areas. The water market rules should prohibit exit fees and exclude them from being part of terms and conditions for transformation and/or trade. The VFF supports the Murray Darling Basin Agreement (MDBA) Schedule E protocol on access, exit and termination fees that provides for some circumstances when an operator can seek security over the future payment of access fees. Specifically: Before approving the transfer of any water entitlement, an infrastructure operator should not require security for the payment of future continuing access fees unless: (a) the current market value of any water entitlements retained by the transferor to water within the relevant irrigation district is less than 50 per cent of any termination fee which would be payable upon the surrender of all of the delivery entitlements retained; and (b) the infrastructure operator considers, on reasonable grounds, that there is a significant risk that the transferor may be unable to pay future access fees in relation to those delivery entitlements, when they fall due.  Issues for Farmers Considering the Use of Reclaimed Water for Agriculture, VFF Report, 2008. Essential Services Commission, Melbourne Water Determination, 1 July 2005 30 June 2008 page 18 http://www.esc.vic.gov.au/NR/rdonlyres/0EC9DC49-A9F6-47DC-B010-CF2D31754CCA/0/Determination_MW_20050615.pdf  NSW Independent Pricing and Regulatory Tribunal. Review of Prices for Sydney Water Corporations water, sewerage, stormwater and recycled water. 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